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This  item  is  f  ihnad  at  the  rtduction  ratio  diacfcad  ImIow/ 

Cc  document  tst  filmt  au  uux  dt  riduclion  indtqu^  ci-destout. 

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Th«  copy  film«d  h«r»  hs«  bumtt  raproduead  thanki 
to  ih*  ganarMity  of: 

National  Library  of  Canada 


L'oxamplairo  film*  fut  rtproduil  grico  *  la 
gtnirotil*  da: 

Blbllothaqu*  national*  du  Canada 


Tha  imagaa  appaaring  hara  ara  th*  baat  quality 
poasibia  eonaidaring  tha  condition  and  l*gib:lltv 
of  tha  original  copy  and  in  kaaping  with  th* 
filming  contract  apacif icationa. 

Original  eopiaa  in  printed  pap«r  cov*r«  ara  fllmad 
baainninfc  with  tha  front  covar  and  ending  on 
th*  laat  paga  with  a  printad  or  illuitratad  ""P"»- 
.ion.  or  tha  back  covar  whan  appropriata.  All 
othar  original  eopiaa  ara  filmad  baginning  on  tha 
firat  paga  with  a  printad  or  illuatratad  impraa- 
aion.  and  anding  on  th*  laat  pag*  with  a  printad 
or  illuatratad  impraaaion. 


Th*  laat  racordad  frama  on  aach  microflcha 
shall  contain  tha  aymbol  — »•  ''"••"'"^.^rrl:; 
TINUEO").  or  tha  aymbol  V  Imaaning    BND  I. 
whichavar  appliaa. 

Maoa.  Plata*,  chart*,  ate.  may  b*  film*d  at 
diff.r*nt  r*duct.on  ratioa.  Thoaa  too  larga  to  ba 
*ntir*ly  includ*d  in  on*  *»poaura  ara  fllmad 
baginning  in  th*  upp*r  l*ft  hand  cornar.  laft  to 
right  and  top  to  bottom,  as  •"••'*.♦"•"••••. 
raquirad.  Th*  following  diagrams  illuatrata  tha 
mathod: 


Las  imagas  suivantas  ont  *t*  raproduiias  avac  la 
plus  grand  soin.  compt*  t*nu  d*  la  condition  si 
d*  la  n*n*i*  d*  r*«*mpl*ir*  filmt.  *i  *n 
conformit*  avac  l*(  conditions  du  conirai  da 
tUmaga. 

Laa  aaamplairaa  originaux  dont  la  couvartura  an 
p*pi*r  **t  imprim**  sont  film**  *n  commancani 
par  la  pr*mi*r  plat  at  an  tarminant  soil  par  la 
dorniAr*  pag*  qui  comport*  un*  *mpr*ini* 
d'impr*aaion  ou  d'illustration.  soil  par  la  sacond 
plat,  salon  I*  ca*.  Toua  laa  autras  axamplair** 
originaua  sont  filmOs  an  commancant  par  la 
pramiAr*  paga  qui  comporta  una  amprainta 
d'impraaaion  ou  d'illuatration  at  an  tarminant  par 
la  d*rni*r*  pag*  qui  cempon*  un*  t*ll* 
*mpr*int*. 

Un  d**  symbol**  suivants  spparaltra  sur  la 
d*rni*r*  imag*  da  chaqua  microfiche,  salon  la 
caa:  la  symbols  — ^  siynifia  "A  8UIVRE".  la 
symbol*  V  signifi*  "FIN". 

Us  c*rt*s.  planchaa.  tablaauH.  ate.  pauvant  atra 
film**  *  das  uua  da  rtduction  ditfironts. 
Lorsqu*  I*  doeumont  **t  trop  grand  pour  itra 
raproduit  an  un  s*ul  clich*.  il  *st  film*  *  panir 
da  I'angI*  sup*rl*ur  gauch*.  da  gaucha  *  droiia. 
at  da  haul  an  baa.  an  pranant  I*  nombr* 
d-im*g*s  n*c*saaira.  Laa  diagrammaa  suivanis 
illuatrant  la  mathoda. 


1  2  3 


1 

2 

3 

4 

5 

6 

MKROCOPY    RISOIUTION   TIST   CHAIT 

(ANSI  ond  ISO  TEST  CHART  No.  2) 


1.0 


I.I 


12^ 
■  31 


^     |U 


1.8 


mmni^ 


A     /APPLIED  IIVHGE     Inc 


Carnegie  Endowment  for  International  Peace 


DIVISION  OF  ECONOMICS  AND  HISTORY 
IMN  MTU  cum,  MIICTM 


PRELIMINARY  ECONOMIC  STUDIES  OF  THE  WAR 


lOITID  IT 

DAVID   KINLEV 
wr  «f  PelliicaJ  Ecomoit.  Uainnlty  at  lUlnoU 
Haabw  ol  Caaaliua  ol  Knonk  ol  ika  EMswaau 


No.    14 


BRITISH  LABOR  CONDITIONS  AND 
LEGISLATION   DURING  THE   WAR 


M    B.    HAMMOND 

Profrltor  of  EroRomici,  Ohio  Suir  Univrraity 

ReprtKnlative  of  V   S.  Food  Admininntloii  on  the 

War  Labor  Policiri  Board 


NEW  YORK 

OXFORD  UNIVERSITY  PRESS 

AMERICAN  BRANCH    3S  Wiii  32>d  Stiiit 
LONDON.  TORONTO,  MELBOUKNE.  AND  BOMBAY 
1919 


l   f  •• 


nni 


■  \r  1 1. 


r  '*; 


1  '^  WV 


COPVRIGHT  19» 
CARNEGIE    ENDOWMENT  FOR  INTERNATIONAL  PEACE 

2   JACRIOH   PlacI.  WAlHtHGTON.  D     C 


9  81J457 


EDITOR'S  PREFACE 

The  subject  of  this  monograph  is  one  of  wide  pubhc  interest 
Perhaps  no  one  subject  connected  with  the  war,  aside  from  those 
having  immediately  to  do  with  dire,  .  military  operations  has 
aroused  a  greater  in.erest  in  the  minds  „(  the  public  than 'have 
changes  induced  in  the  labor  situation.  The  .ditor  requested 
I'rofessoi  Hammond  to  take  up  the  subject,  believing  .hat  his 
years  of  study  of  labor  questions,  and  his  familiarity  wi  h  inno- 
vations in  Australia  and  elsewhere,  would  enable  hin,  more 
quickly  to  understand  and  more  justly  to  appreciate  the  impor- 
tance of  such  radical  changes  as  the  war  induced  in  the  condi- 
tions of  employment  and  life  of  the  workers  of  the  world.  His 
treatment  has  justified  this  confidence. 

Aside  from  contributing  to  our  information  on  the  condition 
of  labor  in  tne  war.  Professor  Hammond's  discussion  will  help 
the  public  to  j.-ster  conclusions  on  many  matters  commonly 
described  as  a  dispute  between  labor  and  capital,  though  more 
correctly  described  as  between  the  sy^Lems  of  economic  liberal- 
ism and  social  control  of  capital.     Many  of  the  critics  of  eco- 
nomic liberalism  seem  to  show  by  their  comments  that  their 
familiarity  with  the  doctrines  of  liberalism  are  .second  hand     As 
m  their  theology  they  are  presbyterians,  nerhaps,  because  their 
fathers  and  mothers  were,  so  they  are  solilarists  and  critics  of 
'iberalism  because  their  teachers  were  so.     They  bitterly  assail 
Ricardianism,   but   have  never   read    Ricardo.     Many   of   the 
propi:ets  fail  to  s'e,  or  seeing  fail  to  admit,  that  the  aim  of  the 
individual  system  of  economic  philosophy  is  precisely  the  same 
as  that  of  the  system  of  so-called  social  solidarity,  the  improve- 
ment of  the  economic  life  of  the  individual  humpi   being.    Eco- 
nomic liberalism,  as  a  system,  has  contributed,  as  showi,  by  men 
like  Hermann  Levy,  very  largely  to  the  progress  of  humanity. 
Its  adherents,  like  tho.se  of  the  "  n-   ,  "  social  philosophy,  believe 
that  the  earth  belongs  to  us  all.    It  bade  each  of  us  to  go  in  and 


<V  EDITOR  S    I'KErACE 

get  his  share  in  the  belief,  which  was  more  or  less  justified 
under  conditions  of  a  century  ago,  that  each  would  be  able  to 
get  his  share.  Now  that  the  field  of  competition  is  more 
crowded,  and,  therefore,  mm  must  jostle  one  another  in  the 
race,  more  complex  "  rules  of  the  game  "  must  be  laid  down. 
We  can  not  now  assume  that  each  will  get  his  share  by  his  own 
strength.  We  must  find  some  means  of  assuring  him  a  share 
proportional  in  equity  to  his  contribution  to  the  general  welfare. 
We  arc  bound,  moreover,  to  inquire  into  the  legitimacy  of 
unusual  gains  by  individuals  and  to  take  such  measures  as  are 
necessary  to  prevent  the  exploitation  of  one  by  another.  Yet 
these  necessities  of  the  situation  involve  no  new  social,  juridical, 
nr  philosophical  principles.  That  private  property  is  a  public 
t,  jst  is  a  thought  imbedded  in  the  juridical  system  of  the 
English-speaking  peoples;  that  the  community  can  compel  the 
observance  of  this  principle  is  a  fact  that  has  always  been  recog- 
nized among  those  peoples.  Sometimes  they  have  thought  that 
a  minimum  of  intervention  secured  the  end.  At  other  times, 
among  them  the  present  time,  they  have  thought  a  maximum  of 
intervention  necessary.  But  the  aim  and  the  principle  have  been 
the  same.  We  need  to  remember  this  in  these  days  when  so 
many  proposals  of  social  reconstruction,  not  well  thought  out 
and  not  logically  coherent,  are  being  foisted  on  the  public 
attention. 

Professor  Hammond's  study  shows  that  in  the  attempt  to 
secure  that  welfare  of  the  worker  which  has  been  the  common 
aim  of  liberalism,  as  well  as  of  other  social  systems,  the  existing 
conditions  of  industry  justify,  and,  indeed,  necessitate,  a  more 
complex  regulation  of  the  relations  between  the  employer  and 
the  employed,  a  better  protection  of  the  economically  weak,  a 
renewed  insistence  on  the  principle  that  the  welfare  of  each 
is  in  a  true  sense  the  business  of  all.  The  study  shows  that 
some  of  the  measures  necessary  are  a  greater  coordination  of 
the  eforts  of  the  worker  and  the  employer,  and  greater  efficiency 
on  the  part  of  both,  leading  permanently  to  the  higher  wages 
necessary  for  better  living  conditions.  We  are  familiar  with 
such  proposals.     The  duty  as  well  as  the  self-interest  of  the 


.        i*!«. 


koitor'.s  preface  V 

public,  which  after  all  is  simply  ihe  whole  number  of  us  or  the 
majority  of  us  in  certain  relations,  makes  necessary  insistence 
on  the  provision  of  better  physical  conilitions  -f  living,  betKr 
moral  surroundings,  wider  ec;  -ational  opportunities,  and  a 
wider  and  deeper  sense  of  mutual  obligation.  It  is  hopeless 
to  think  that  these  ends  can  be  largely  or  permanentl;  ittaiiied 
through  the  exercise  of  force  by  any  one  class  over  another. 
The  lasting  solution  lies  in  the  acceptance  of  Iwtter  moral 
standards  which  lead  us  to  recognize  our  mutual  duties  and  to 
make  our  self-interest  more  enlightened. 

I  commend  Professor  Hammond's  work  to  ihe  earnest  con- 
sideration of  all  stud.nits  of  the  subject. 

David  Kinley, 
Editor. 

Urbana,  lUtnoit,  February  19,  JwJ. 


FOREWORD 

The  publishers  of  this  series  of  studies  have  wisely  emphasized 
the.r  prehmmary  character.  To  record  the  important  happenings 
m  a  great  war  and  to  attempt  to  show  the  causal  connection  of 
these  events  wh.le  the  war  is  still  in  progress  means  that,  inevita- 
bly the  writer  wll  mistake  the  significance  of  certain  events  and 
either  magnify  or  minimize  their  importance.  I  have  sought  to 
avoid  this,  as  far  as  possible,  by  making  my  account  a  narration 
rather  than  an  interpretation.  A  critical  account  of  the  labor 
situation  and  administration  in  Great  Britain  during  the  war 
must  awr  •  the  pen  of  some  future  historian. 

E    T  -,,'  regards  the  accuracy  of  some  of  the  statements  in  the 
tollo  .■  ■:■  pages.  I  may  not  speak  with  assurance,  although  I 
nav,  ,. St    official  material,  wherever  possible,  and  have  otherwise 
used  the  best  information  available.     J  have  received  generous 
as,s,stance  from  manv  persons  in  the  course  of  the  preparation 
ot  the  monograph,  but  I  am  especially  indebted  to  Mr  Hugh  S 
Hanna   now  Assistant  Secretary  of  the  War  Labor  Board    but 
formerly  engaged  in  editorial  work  for  the  Bureau  of  Labor 
Statistics  of  the  United  States  Department  of  Labor,  and  who 
during  the  early  stages  of  this  monograph,  was  keeping  in  close 
touch  with   English  labor  movements  and   legislation.     I  am 
adso  iLdebted  to  Miss  Laura  A.  Thompson,  Librarian  of  the 
Department  of  Labor,  who  has  not  only  supplied  me  with 
material  but  with  information  as  to  where  it  was  tn  be  found. 

rr  .,  .  „         „  M.  B.  Hammond. 

United  Stales  Food  Administration, 
November  1, 191S. 


CONTENTS 

CHAPTER 

I  The  Social  Background   3 

II  English  Industry  and  Labor  at  the  Outbreak  of  the 

War    22 

III  Industrial  Panic  and  Readjustment 32 

IV  The  Gcvernment  and  the  Trade  Unions 68 

V  The  Munitions  of  War  Acts gg 

VI  The  Supply  and  Distribution  of  Labor 113 

VII  The  Dilution  of  Labor  140 

VIII  Wages,  Cost  of  Living,  Hours  of  Labor,  Welfare 

Work  and  Unemployment igs 

IX  Industrial  Unrest   230 

X  Industrial  Reconstruction    269 

Ind"   329 


BRITISH    LABOR    CONDITIONS   AND 
LEGISLATION 


CHAPTER  I 

The  Social  Background 

The  coming  into  power  of  the  Liberal  government  in  1905 
marks  for  England  the  beginning  of  a  new  era  not  only  in 
politics  but  in  social  legislation.  For  a  decade  or  more  there 
Kd  been  signs  of  industrial  unrest  and  of  a  growing  discontent 
among  the  working  classes.  In  spite  of  the  wonderful  expansion 
of  mdustry  and  of  trade  during  the  preceding  half  century,  and 
of  an  enormous  increase  of  wealth  whose  rate  of  growth  far 
exceeded  that  of  the  population,  it  can  not  be  said  that  this  pros- 
perity had  been  shared  by  all  classes  or  that  either  Parliament  or 
party  leaders  showed  any  marked  disposition  to  favor  measures 
which  tended  to  promote  a  better  distribution  of  wealth  or  to 
raise  the  standard  of  living  of  the  working  classes.  Imperialism, 
home  rule,  colonial  federation  and  fiscal  reforms  were  the  ques- 
tions which  chiefly  occupied  "He  attention  of  the  politicians,  and 
even  Mr.  Chamberlain's  advocacy  of  old  age  pensions  was 
coupled  with,  and  subordinated  to,  his  desire  to  secure  a  protec- 
tive tariff. 

The  struggle  to  secure  factory  legislation  which  had  marked 
the  first  half  of  the  nineteenth  century  found  no  counterpart  dur- 
ing the  second  half,  although  the  laws  themselves  were  codified 
and  improved  in  details.  The  legislative  movement  in  behalf  of 
shorter  hours  had  apparently  come  to  an  end.  and  iuch  later 
progress  as  had  been  made  in  that  direction  had  come  mainly 
through  the  trade  unions. 

The  trade  unions  themselves  had  made  continuous,  if  not 
steady,  progress  and  in  certain  lines  of  industry  had  succeeded  in 
securing  for  their  members  good  wages  and  working  conditions, 
but  their  influence  was  confined  for  the  most  part  to  the  skilled 
trades  and  even  in  these  trades  their  progress  was  by  no  means 
3 


*  »«mSH    LABOR   CONDITIONS   AND  LEGISLATION 

..i>.i.s .  «*■«'„,„.,,.  „TL"  1„  *,'*""'''.'  ~"- 

-secured  oVr^r'';"^^  ™'~""  Unemployed  Workmen  Bill 

to  labor  relj,  ^'^"''  ^'"'"'  ^'  "'^  ="■"«  "'"e  and  pledged 

A.  D  1-  ^'™™-Labor  measures  and  left  little  doubt  that 
the  Parhament  which  assembled  in  laoo  would  carry  out  a  pro 
g  am  of  social  reform  of  a  far  reaching  character     Whit  some" 

dent,  by  the  mvest.gat.ons  and  report  of  the  Poor  Law  Commls- 


THE   SOCIAL   BACKGROUND  6 

«on,  which  was  appointed  in  December,  1905,  and  which  com- 
pleted its  work  early  in  1909. 

Findings  and  Recommendations  op  the  Poor  Law 
Commission 

Much  of  the  work  of  the  commission  had  to  do  with  the 
history  and  administration  of  the  existing  poor  laws,  with  sta- 
tistics of  the  numbers,  ages  and  distribution  of  paupers,  with  the 
costs  of  relief  and  with  the  work  of  private  charities,  but  here 
and  there  in  the  re;)ort  and  the  appendices  are  discussions  of  the 
causes  of  pauperism,  which  show  that  much  of  the  prevalent  pov- 
erty and  distress  was  due  to  the  social  environment  in  which  the 
lalwring  classes  were  living  and  to  the  failure  of  society  to  adopt 
preventive  measures  which  are  everywhere  called  for  by  the 
present  mode  of  industrial  organization. 

Of  the  causes  of  pauperism,  the  commission  placed  chief  em- 
phasis upon  the  following : ' 

1.  Old  age,  "  when  combined  with,  or  following  upon,  other 
causf  s,  such  as  low  earning  power,  drink  or  shiftlessness."  The 
relation  of  this  cause  to  the  industrial  situation  is  seen  in  the  sig- 
nificant statement  that  the  commission  "  found  a  very  general 
>inion  that  the  development  of  industry  is  such  as  to  make  in- 
creasing demands  upon  the  worker,  and  thus  cause  him  to  drop 
out  of  the  industrial  ranks  at  an  earlier  age."  The  obvious  solu- 
tion of  the  old  age  problem  was  a  system  of  old  age  insurance 
or  old  age  pensions  and  Parliament  had  already  taken  this  step 
liefore  the  Poor  Law  Commission  made  its  final  report,  by  the 
adoption  of  the  Old  Age  Pensions  Act,  190,S.  As  regards  the 
reluctance  of  employers  to  engage  old  men,  the  commission  said 
that  this  tendency  to  pauperism  was  beyond  the  influence  uf  the 
poor  law  administrators,  but  that  the  remedy  was  to  be  iound 
partly  in  a  willingness  of  trade  unions  to  allow  older  men  to  work 
for  a  lower  wage  th~.n  that  paid  to  younger  men,  and  partly  in  a 
system  of  insurance  against  unemployment. 

n^.=„^"T''Ti°'„""''  ","*  °L""  '"o"''  I^"  "'port  is  to  be  found  in  Helen 
Bosanquet  s  The  Poor  Law  Report  of  1909,  pp.  24-42. 


*  "'""«  "^BO.  CONDITIONS  ^v„ 

dependency      w-,,      ■         "*'''  'o  be  one  of  .h-    i.-  ,   ™™u»«» 
dependency  ^  .h "^ '"  ^^^^'^^  ''  "o.  redu  ed   „  ,X  7 

reconimend  that  n,  '*°P'e  themselve,  "  k  .    .    "  "" 

w  the  wav  nf.-^        """"^  of  Lords     M?^/  f*^    •""lority, 
resources  of  fh.  <      ?  '  "'"'  P'olor  «;d   tenH     .      ^  '"""  «' 

::J";:dSr^"=-£'£--- 

P-em":  S:r/  -<"-,  reHef/  -V--c^an.ei„,he 
especially  when  Zi  ''"oniniended  that  i^  '^    '"  °" 

^■'^'"'ess  and  loss  of  vtll"'"  "'"'  *""  -■»"><".•.«  as  thev  ■  h 
»'  stated  bv  the  pl    r     ^'  "■"'  ^-nong  the  ca,,«     /    ^  '"''"« 


THE   SOCHI,   BACKGROUND  7 

lated  common  lodging  houses  and  furnished  rooms.  Thr  gov- 
vernment  undertook  to  deal  with  the  housing  problem  by  the 
Housing,  Town  Planning,  etc..  Act,  llloi). 

5.  Amongst  industrial  causes  of  pauperism,  the  commis.sion 
declared  that  im-gutarily  of  employment  stood  foremost.  To  a 
certam  extent  casual  lalxjr  itself  was  found  to  !«  a  result  of  the 
demoralijation  of  the  work  people  by  other  ,ses,  but  there  was 
little  doubt  in  the  minds  of  the  commission  that  if  regularity  of 
employment  could  be  secured  for  those  able  and  willing  to  work, 
pauperism  of  the  worst  type  would  lie  greatly  reduced.  "  Take- 
away casual  lal.  and  drink  and  y.,u  can  shut  up  three  quarters 
of  ihe  workl.  i,es,"  is  one  of  the  strong  statements  in  the 
report  to  which  the  commission  apparently  lent  its  approval.  In 
this  connection  the  commission  called  attention  to  the  extent  to 
which  the  casual  labor  force  was  recruited  from  the  ranks  of 
boys  turned  out  from  the  elementary  schools  without  having  anv 
industrial  training. 

The  recommendations  of  the  commission  that  a  system  of 
labor  exchanges  throughout  the  United  Kingdom  lie  established, 
that  in  connection  with  these  exchanges  and  with  the  .schools 
there  should  oe  crtated  committees  or  agencies  prepared  to  advi.se 
chil<lren  and  tliclr  parents  in  regard  to  the  child's  future  work 
and  that  a  system  of  unemploymc  t  insurance  be  established  at 
first  aniong  the  well  organized  trades,  but  gradually  extended  to 
others,  were  carried  out  in  T'arliament  by  the  pas.sage  of  the 
Labor  Exchanges  Act,  1909,  and  by  the  adoption  of  Part  II 
r Unemployment)  of  the  National  Insurance  Act.  IftU. 

rt.  Low  earnings  in  certain  occupations  are  mentioned  by  the 
commission  as  another  cause  of  pauperism,  hut  less  emphasis  is 
placed  upon  this  than  upon  some  of  the  others  above  mentioned 
If,  however,  we  substitute  the  word  povcrlv  for  that  of  pauper- 
ism we  should  doubtless  find  low  earnings  occupying  a  much 
more  important  place  among  the  contributing  causes.  By  the 
Trade  Boards  Act,  1909.  Parliament  endeavored  to  furnish  a 
means  of  combating  the  evil  of  low  wages  in  the  sweated  trades 
The  above  mentioned  do  not  exhaust  the  list  of  the  factors 
contributing  directly  or  indirectly  to  a  state  of  dependency   as 


8  IlKITISH    LABOR   CONDITIONS   AND   LEGISLATION 

rcvcakd  by  the  investigation  of  the  l'„or  Law  Ommii„ion  of 
l.Ml.,.ll)o;i.  riii-y  d„,  however,  con.iiiute  the  most  Important 
causes  there  n>entioned  an.l  they  are  the  ones  t„  which  I'arli.v 
ment  primarily  .lirecled  its  attention  during  the  years  which 
mterveiied  Ixrtween  the  incoming  of  the  Liberal  ministry  and  -he 
outbreak  oi  the  war. 

It  would  prrhaps  Ik  a  mistake  to  conclude  that  the  investica- 
tions  and  report  of  the  l>,x,r  Law  Commission  were  mainly 
responsible  for  the  adnption  of  the  program  of  social  legislatioi, 
enacte<l  by  I  arhamert  during  these  years,  Man^  of  these  reforms 
had  been  urged  for  years  by  social  reformers',  who  base<l  their 
demands  largely  ufn  the  results  obtaine.l  through  sue  .  le.Msla- 
tiun  m  other  cour       ..  particularly  in  (iermanv  and  the  Austra- 

asian  coiomes  of  e ,  Britain.    Furthermore,  the  recommen.la- 

fions  of  the  Poor  Law  Commission  were  frequently  disregar.le.l 
by  Farl.ament  when  it  catne  to  legislate  on  these  matters  The 
commission  itself  was  not  a  unit  in  its  recommendation  of 
reforms.  A  minority  of  four  members  wer.  .lissatisfied  with 
the  program  of  reforms  submitte.1  by  the  fourteen  members  wlm 
constituted  .he  majority,  and  this  minoritv  .submitted  a  demand 
for  more  radical  changes  than  those  advocated  bv  the  majorilv 
commissioners,'  The  great  services  of  the  investigation  and 
report  made  „y  the  Poor  Law  Commission  v.ere  that  they  ma.le 
clear  the  conditions  e.xistinf  among  the  prx>rer  classes  in  the 
United  K.ngdom  in  1909;  that  they  revealed  the  tendencies 
towards  degradation  among  1,  '«rers  still  living  above  the  pauper 

Tfo^l  ','• '"  'T  '''"•  ""'^  P"'"'«'  °"  "■'  """'"o"  which 
retorm  legislation  shouil  take 


The  Trade  Dispijtes  Act 

The  fii-st  important  labor  Pleasure  which,  having  b.-en  intro- 
duced and  discussed  in  the  House  of  Commons  under  the  control 
of  the  Liberals,  ran  the  gauntlet  of  the  House  of  Lords  and 


THE    SOIUU    BACKCHOIND 


an<l  their  ,„.„„«,,  pro«a,Hler '.."■"  "  "  "  ""'"'"'""* 
havinK  uniiol  i„  r.,  rain.         „T        "'^ ™"'''"'-«y  '""s   for 

.heir  p,,.,.,.,  „,„,;::::  .^^^^.--^^aiu..,  i„  ,.„  ,„„ 

ami  Ix7(i.     I,  was  t-fiuTalU  '"^   ' '-"li'  Lm.in  Arts.  |s71 

.hat  tra.le  uni:n  X  n  ^rvvt  ""'V"^'"  "'^'  '"'"'  '■''" 
.hey  restrain..!  tra.l.  an.  «h  11  "!  /"''''''"■  """  '"""«'' 
criminal  cnspirac.v  melT^rr'oT  J/  ^  „  rh,,":::?'''''"  ''^ 
ment  or  c,;ml,ination  to  further  a  .,7.  "'  '"  ■■"•'"''- 

.he  unions  of  liability  f„r,!"V     «     ?""'  ^"^  '^"'  ^'l'"'-'' 

<hspute  fostere,!       'uppo  Z  C  :h  "  '  "'""  "'  »  '""^' 

Kinn   u  »"i'i'"nc'i  ny  the  union  or    is  ant-nt^      r 

ii">",  however  a^  a  roct.i*  ,.*       .  •.  aftcnts.      In 

;he  railway  co.;:;r^:--™-TaH^V.,e  Kail. 

•■^  •  'h-o-tena::^-,hes':xr"':h  ■-"■'"'•  =""^""«''  '• 

financial  support,     Mr    I,  ,' id'  f'   "7"''''"'  R'ven  the  nu-n 
Justice, awaXl,lama«s!^^^^^^  '"  'X"''^^  Court  of 

a  corporation  nor  a  ™^„efr„  J""  ''^"^' "'""«''  "'"her 

inlivi  Inal,  veste.   bv^h!,        "^^  """'  ^'  ''"''•  •■"'  """ciation  of 

proper.,  anitt^brsrru;:;;  iXir '■""- 

e!se  this  agitation  waTre^onsiMe t  'Z''        "r'  ""  ""•  ""'"'^ 
-haaat.e™pt^:r^.---S-pofMr^^ 


10  DKITISII    LABOR    CONDITIONS    AND    LEGISLATION 

duced  by  the  .vernment  was  so  mutilated  in  the  course  of  its 
consideration  in  committee  that  it  was  withdrawn.  Under  Lib- 
eral leadership  the  Trade  Disputes  Act,  1906,  was  brought  for- 
ward early  m  the  next  session,  was  amended  by  the  adoption  of 
a  clause  taken  from  a  more  radical  bill  introduced  by  the  Labor 
members  and,  as  amended,  finally  became  law,  as  hitherto  stated 
The  act  legalized  peaceful  picketing,  removed  liability  for  acts 
done  in  furtherance  of  a  trade  dispute,  on  the  ground  only  that 
they  induced  other  persons  to  break  a  contract  of  employment  or 
that  they  interfered  with  the  business  or  employment  of  some 
other  person,  and  forbade  any  court  to  entertain  an  action  against 
a  trade  union  in  respect  to  any  tortious  act  alleged  to  have  been 
committed  by  it  or  on  its  behalt.  The  enactment  of  this  measure 
was  probably  largely  responsible  for  the  growth  of  trade  unions 
in  Creat  Britain,  whose  ggregate  membership  increased  from 
2,113,806  in  1906  to  3,t    "  115  in  1913. 


Workmen's  Compensation 

Another  important  piece  of  labor  legislation  enacted  at  the 
1000  session  of  Parliament  was  the  Workmen's  Compensation 
Act,  1900  (6  Edw.  7,  c.  58).  The  principle  of  workmen's 
compensation  as  opposed  to  that  of  employers'  liability,  had  been 
accepted  by  the  British  Parliament  in  1897,  but  the  1897  act  had 
limited  the  right  to  claim  compensation  to  workmen  engaged  in 
the  most  dangerous  occupations  and  had  made  the  payment  of 
compensation  cnmpulsory  only  upon  employers  in  these  trades 
who  were  solvent  or  who  had  insured  themselves  against  the 
risks  to  their  workmen.  In  1900  the  act  had  been  extended  to 
cover  laborers  engaged  in  agriculture  and  gardening,  occupations 
not  generally  believed  to  be  dangerous  callings.  In  1906  the 
government  proposed  further  to  extend  the  principle  of  work- 
men s  c.impensation  to  all  industrial  callings,  but  excluded  from 
Its  operation  police-constables,  clerks,  shop  assistants,  domestic 
servants  and  employes  of  employers,  other  than  those  engaged 
m  agriculture,  whose  workmen  did  not  exceed  five  in  number. 
Parliament  refused  to  make  these  exceptions  and  the  act  as 


THE    SOCIAL    BACKGROUND 


11 


passed  covered  workmen  in  all  occupations  except  clerks  and 
salaried  employes  in  receipt  of  salaries  of  £250  or  over  Small 
as  well  as  large  employers  were  made  liable,  but  insurance  by 
employers  was  not  made  compulsory.  A  certain  degree  of  nr(i 
tection  was  aflforded  to  workmen  whose  employers  might  become 
bankrupt.  The  act  classed  certain  occupational  disc,  ses  as  acci- 
dents for  which  compensation  was  made  payable,  and  provided 
that  the  Secretary  of  State  might  make  orders  extending  this 
section  of  the  act  to  other  diseases  due  to  the  nature  of  the 
employment.      It   was   estimated    that   the   act   of    1S!)7   had 

innnni'"°'""°"  '°  "•"""■'•""  workmen,  that  another 
1,000,000  engaged  in  agriculture  were  covered  by  the  I'lOO 
amendment  and  that  the  act  of  1!)0«  brought  another  (i  000  000 
people-13,000,000  in  ail-under  the  provisions  of  the  work- 
men s  compensation  law.  Further  amendments  to  the  act  were 
made  in  1917  by  the  Workmen's  Compensation  (War  Additions) 

Old  Age  Pensions 

Parliament  next  turned  its  attention  to  the  subject  of  old  age 
pensions.  As  already  stated,  the  agitation  for  old  age  pensions 
had  begun  while  the  Unionists  were  in  control  of  Parliament,  but 
It  had  then  been  coupled  with  certain  proposals  for  fiscal  reform 
which  Parliament  was  unwilling  to  accept.  When  the  Liberals 
came  into  power.  Labor  members  pressed  for  consideration  of  the 
question  of  furnishing  old  age  pensions  from  the  public  funds 
I  he  government  at  that  time  lacked  the  necessary  funds  but 
agreed  to  deal  with  the  matter  later.  In  the  early  part  of  1908 
the  government  introduced  its  bill  for  old  age  pensions.  Oppo- 
nents of  the  measure  sought  delay,  claiming  that  Parliament 
should  wait  until  the  Poor  Law  Commission  had  made  its  report 
and,  when  this  request  was  refused,  they  sought  to  make  the 
measure  unpopular  by  moving  amendments  which,  if  adopted 
would  add  greatly  to  the  cost  of  the  government's  plan  The 
Liberals  resisted  all  efforts  to  weaken  their  measure  and  the  bill 
became  a  law  (8  Edw.  7,  c.  40)  on  the  first  day  of  August, 
'  Labour  Gazette,  1917,  p.  313. 


''•i  BRITISH    LABOR   CONDITIONS    AND   LEGISLATION 

1008,  the  House  of  Lords,  although  not  friendly  to  the  measure 
having  accepted  it  as  good  party  tactics. 

The  act  allowed  a  pension  to  Ik  paid  from  the  pul,Iic  funds  to 
every  British  subject  resident  within  the  United  Kingdom  for  at 
least  twenty  years  who  had  reached  the  age  of  70  years  and  whose 
annua  income  did  not  exceed  £::  I ,  lOs.    The  amount  of  the  pen- 
sion allowed  varied  according  to  the  yearly  means  of  the  re- 
cipient but  might  be  not  more  than  5s.  per  week.    No  person  was 
entided  to  a  pension  (1)  who  was  at  the  time  of  his  application  in 
receipt  of  poor  relief;  (2)  who  had  received  poor  relief  at  any 
ime  between  the  dates  of  January  1,  ]yo8,  and  December  31, 
1910;  (,t)  who  had  •■  habitually  failed  to  work  according  to  his 
ability   opportunity  and  need  for  the  maintenance  or  benefit  of 
himself  and  those  legally  dependent  upon  him  ";  (4)  w  -.  was 
being  detained  in  a  lunatic  asylum  or  in  any  place  as  a  pauper  or 
criminal  lunatic;  or  (fl)  who  was  disqualified  for  registration  as 
a  parliamentary  elector  in  consequence  of  conviction    for   an 
offense     A  person  might  also  be  refused  a  pension  while  he  was 
being  detained  in  prison  or  for  a  period  of  ten  years  after  his 
release,  and  the  same  disqualification  might  be  applied  to  any 
person   convicted   and  liable   to   a  detention   order  under   the 
Inebriates  Act,  1908. 

It  was  estimated  in  advance  that  the  number  of  persons  apply- 
ing for  a  pension  in  1!)0()  and  found  entitled  thereto  would 
be  about  380,000  and  that  this  number  would  increase  to  O^n  000 
in  ].»12  chiefly  as  a  result  of  the  expiration  of  the  poor  relief 
disqualification  at  the  end  of  l!no.  Even  these  large  estimates 
were  far  below  the  figures  which  experience  showed  to  represent 
the  persons  entitled  to  this  mode  of  assistance.  The  number  of 
pensioners  was  (ifiT.OOO  in  1001)  and  !»42.000  in  11)12  About 
three-fourths  of  the  population  over  70  years  of  age  receive  old 
age  pensions  under  the  act  of  1008.' 

The  rapid  rise  in  prices  during  the  war  bore  with  especial  sever- 
ity on  the  old  age  pensioners,  and  during  the  year  1916  the 
government  decided  to  make  an  additional  allowance  (not  to 
exceed  2s.  6d.  a  week)  to  any  old  age  pensioner  whose  total  in- 
'  Rubinow :  Social  Insurance,  pp.  378-379. 


THE   SOCIAL   BACKGROUND  J3 

Minimum  Wage  Legislation 

bv'^pir"  "^ '""  """'"^'  '"  ""=  ™^="'''  '"<ies  was  dealt  with 
by  Parhament,  as  we  have  already  observed,  by  the  Tra  . 
Boards  Act,  1909  (9  Edw   7  c  221      In  i.m-    u    t,  ^^ 

had  sent  a  comn^i  sioner    Mr    p       ,   .        '  ""  "™'  O"^" 

lish  wages  boards  Jong  Australian  lines  which  5^  fi 
1  rade  Board  composed  of  representatives  r,f  .h.        i 

and   bad  working  conditions  generally  pre       edTh/r 
Board  was  to  fix  a  minimum  rate  of  wa^ef  f,     rlt    T      u  ?''^ 
represetued  and  might  also  fix  n^int:^ t::Vf':Sf  f^^^^^^^^^ 

mplc.  .rs  m  that  trade     In  order  that  all  localities  in  which  the 
^■iroMly  «™v-.  of  ,U  U.  S.  Bur.au  of  Utor  SMs,ics.  My.  1917.  pp. 


14 


BRITISH    LABOR   CONDITIONS    AND   LEGISLATION 


ized  to  establish  district  trade  committees,  constituted  in  the 
same  manner  as  the  board  itself,  to  consider  these  peculiar  cir- 
cumstances ind  to  recommend  local  variations  in  the  general 
minimum  wags  adopted  by  the  board.  The  minimum  wt^e  and 
piece  rates  were  t"  be  paid  to  home  workers  as  well  as  to  those 
employed  in  factories  and  heavy  fines  were  provided  for  employ- 
ers who  failed  to  jiay  these  minimum  rates.  Provision  was  made 
for  extending  the  operations  of  the  act  by  order  of  the  Board  of 
Trade  to  any  industry  in  which  the  prevailing  rate  of  wages  was 
"  exceptionally  low  as  compared  to  that  in  other  employments  " 
In  I'JW,  accordingly,  the  act  was  extended  to  the  following 
additional  trades:  sugar  confectionery  and  food  preserving, 
shirt  making,  hollow-ware  making  and  cotton  and  linen  embroid- 
ery. About  400,000  workers  were  employed  in  the  trades  covered 
by  the  original  act  and  the  extension  order,  and  were  directly  or 
indirectly  affected  by  the  minimum  rates  of  wages  established. 

Although  the  trades  which  have  been  selected  for  the  operation 
of  the  minimum  wage  under  the  provisions  of  this  act  are  those 
in  which  women  constitute  the  majority  of  employes,  the  mini- 
mum wages  and  rates  apply  to  men  as  well  as  to  women  workers. 
Furthermore,  in  order  to  settle  a  strike  in  the  coal  mines  occurring 
in  the  spring  of  1»12,  an  act  was  passed  that  year  which  provided 
wages  boards  to  fix  minimum  wages  and  working  conditions  in 
the  coal  mining  industry. 

A  few  months  prior  to  the  outbreak  of  the  war  in  i914,  the 
Chancellor  of  the  Exchequer,  Mr.  Lloyd  George,  had  proposed 
the  establishment  of  a  commission  to  fix  minimum  rates  of  wages 
for  agricultural  laborers  and  had  further  stated  that  the  govern- 
ment was  considering  the  extension  of  the  wages  boards  system 
to  all  the  lower  paid  industries  in  the  towns.  Although  the  out- 
break of  the  war  postponed  further  consideration  of  these  pro- 
posals, they  indicate  that  the  principle  of  a  legal  minimum  wage 
had  met  with  acceptance  in  government  circles  and  this  partly 
explains  the  willingness  of  the  government  to  make  use  of  this 
principle  when  later  it  was  called  upon  to  regulate  the  manufac- 
ture of  munitions.  As  we  shall  later  see,  a  minimum  wage  was 
provided  for  agricultural  labor  in  1917.    The  Trade  Boards  Act, 


THE   SOCIAL   BACKGROUND 


15 


1918,  gave  authority  to  the  Minister  of  Labor  to  extend  the 
provisions  of  the  act  of  190«  to  other  low  paid  trades. 

Housing  Legislation 

When  the  census  of  1901  was  taken  in  Great  Britain  the 
Census  Commissioners  discovered  that  2,067,000  or  8  2  per  cent 
of  the  population  of  England  and  Wales  were  living  in  392  000 
overcrowded  tenements.  Two-thirds  of  the  people  of  London 
were  living  m  dwellings  having  not  more  than  four  rooms  each 
In  Glasgow  one-fifth  of  the  population  lived  in  one  room  dwell- 
ings and  more  than  half  of  the  people  had  houses  of  not  more 
than  two  rooms  each,'  Every  industrial  city  in  the  United  King- 
dom showed  housing  conditions  differing  from  the  above 
....  y  in  degree;  conditions  which  were  the  product  of  the  rapid 
growth  of  municipalities,  high  rents,  land  speculation  and  failure 
to  realize  the  connection  between  bad  living  conditions  and  vice 
crime  and  disease.  ' 

Some  improvement  in  the  housing  situation  in  the  large  cities 
had  been  eflfected  by  the  Housing  of  the  Working  Classes  Act  of 
1890,  but  more  drastic  reforms  were  needed  and  these  were 
attempted  by  the  Housing,  Town  Planning,  etc..  Act,  1909  (9 
Edw.  7,  c.  44).  This  act  made  it  compulsory  upon  local  authori- 
ties to  provide  new  houses  when  ordered  to  do  so  by  the  Local 
Government  Board,  authorized  the  local  authorities  f.>  purchase 
land  compulsorily  for  such  purposes  and  provided  for  loans 
from  the  public  funds  to  local  authorities,  at  minimum  rates  of 
interest,  in  order  to  enable  them  to  carry  out  the  orders  of  the 
Local  Government  Board.  It  also  provided  that  in  any  house 
let  at  low  or  moderate  rentals,  an  implied  part  of  the  contract 
should  be  a  requirement  on  the  part  of  the  landlord  to  put  the 
house  m  a  condition  "  in  all  respects  reasonably  fit  for  human 
habitation,"  and  to  keep  it  in  such  condition  during  the  period 
of  the  lease.  The  duty  was  placed  upon  the  local  authorities  to 
prohibit  the  use  for  dwelling  purposes  of  any  house  deemed  by 
the  local  medical  authorities  to  be  so  dangerous  to  health  as  to  be 
•Percy  Alden:  Democratic  England,  p.  170. 


16  BRITISH    LABOR   CONDITIONi   AVD   LEGISLATION 

unfit  for  human  habitation,  and  upon  refusal  of  the  local  auf-  ,r. 
■  y  t.  act  an  a,,,«al  might  be  taken  to  the  Local  Govern....nt 
Board.  Houses  closed  because  of  improper  conditions,  which 
were  no,  or  could  not  be  made  fit  for  human  habitation  within 
a  reasonable  length  of  time,  might  be  ordered  demolished  by  the 
local  authorities.  •' 

Precautions  were  taken  to  see  that  land  needed  for  parks  and 
open  spaces  m  towns  was  not  used  for  building  purposes  and 
every  local  authority  included  under  .l,e  terms  of  the  act  was 
required  to  adopt  a  town  planning  scheme  which  had  the  approval 
of  the  Local  Government  Board  and  to  see  that  further  city  or 

o^TLr    7?  ^°""'y  Council  ^,as  required  to  appoint  a  medi- 

but  who,  under  the  supervision  of  the  County  Council  and  the 
Local  Government  Board,  was  required  ,o  perform  such  duties  as 
were  prescribed  by  order  of  the  Local  Government  Board  o 
vvere  assigned  to  him  by  the  County  Council.  Every  County 
Council  was  also  to  have  a  public  health  and  housing  committee 
to  consider  matters  relating  to  public  health  and  the  housing  of 
the  vvorKing  classes  and  to  exercise  ,cl,  authority  as  was  dele- 
gated to  them  by  the  County  Counci,.  The  erectfon  of  back  to 
back  houses  was  prohibited  unless  such  houses  were  so  con- 
structfl  „d  arranged  as  to  secure  effective  ventilation  of  all 
rooms  and  were  so  certified  by  the  local  officer  of  health 

Parliamentary  leaders  recognized  that  no  housing  reform  which 
concerned  itself  merely  with  macters  of  construction  and  sanita- 
TthlZ^r  '<  i"'  i"'"'  "'  overcrowding  in  the  cities,  so  long 
as  the  prob  em  of  land  monopoly  was  unsolved.    One  must  con- 

llt'\r,"uZT  ^"PP'^"^"'^' '°  'h'  Housing,  Town  Planning, 
etc  Act,  laoo,  those  parts  of  the  Finance  Act,  1910  (10  Edw  7 
c.  U  which  deal  with  taxes  on  the  increment  value  of  land' 
aid  with  the  undeveloped  land  duties.  These  were  intended,  as 
Mr.  L  oyd  George  said  in  his  budget  speech  of  luO!),  ,o  force 
urban  land  withheld  from  use  or  not  put  to  the  best  us^,  into  the 
market  where  it  could  be  sold  for  housing  or  industrial  purposes. 
The  House  of  Lords  rejected  this  budget  when  it  was  firsi  pre- 


THE   SOCIAL   DACKGROLXD  jy 

proved  woefully  insufficient  .„  mee,  ,  h.  needs  o™tn 

The  Relief  of  Unemployment 
nTdTd'""",,"'  ''^  ^°'"™'^^'-  -"^  -spec.  ,oM- 

employers  havin/nee"    of    hel      TT.r"  l"  '"™'^''  ""'"--  '° 

management  of  these  evrh=n„..  ,       /."*  "^i^-     ine  entire 

Board  of  Trade  <Z;::^Z  Z^T^'i:!::'-^  I'  '"^ 
also  authorized  tn  m-,1.  ,^  ""*tr>  ot  Labor),  which  was 


18  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

exchanges  during  this  year  were  1,07«,.175,  which  was  76  per 
cent  of  the  vacancies  notified  by  employers. 

Especial  efforts  have  been  made  by  the  Board  of  Trade  under 
authority  of  the  Labor  Exchange  Act  to  assist  boys  and  girl.,  in 
finding  employment  in  occupations  which  will  enable  them  to 
learn  a  useful  trade,  and  the  same  effort  has  been  made  by  educa- 
tional authorities  under  the  Education  Act.  Although  the  cor- 
relation of  the  work  of  these  two  branches  of  the  government 
service  leaves  much  to  be  desired,  considerable  progress  has  been 
made  in  the  way  of  advising  and  assisting  juvenile  laborers  to 
secure  employment. 

The  third  step  in  affording  relief  for  tne  unemployed  was 
taken  in  lull.  Part  II  of  the  .Vational  Insurance  Act.  I'JU, 
provided  for  the  compulsory  insurance  of  workers  in  seven  trades  : 
(1)  building,  (2)  construction  of  works,  (;j)  shipbuilding,  (i) 
mechanical  engineering,  (.■>)  ironfounding,  (())  construction  of 
vehicles,  and  (7)  sawmilling.  These  trades  are  generally  well 
organized,  but  much  unemployment  exists  ber  ise  of  seasonal 
and  cyclical  fluctuations.  Under  the  act  as  adopted,  unemployed 
benefits  amounting  to  7b.  per  week  were  allowed  to  those  un- 
employed in  these  trades.  These  benefits  could  only  be  drawn 
when  work  could  not  be  found  for  men  through  the  labor 
exchanges  and  in  no  case  could  unemployed  benefits  be  received 
by  any  man  for  a  longer  period  than  fifteen  weeks  in  any  one 
year.  The  benefits  were  paid  from  an  insurance  fund  created  by 
weekly  contributions  of  2'/2  d.  from  employers  and  2^!  d.  from 
employes  while  they  remained  at  work.  In  addition  to  these 
contributions  the  government  contributed  one-third  of  the  com- 
bined contributions  of  employer  and  employe.  The  act  provided 
that  trade  unions  which  paid  out  of  work  benefits  to  their  mem- 
bers might  continue  to  do  this  and  could  then  claim  repayment 
from  the  public  funds  up  to  the  amount  which  the  men  would  be 
entitled  to  draw  had  they  applied  for  benefits  to  the  labor 
exchange. 

In  addition  to  the  regular  labor  exchanges  provided  by  the 
act  of  1909,  which  assist  in  the  administration  of  the  act,  the  act 
provided  for  a  number  of  insurance  offices  so  located  that  one 


THt   SOCIAL   BACKGROL-.ND  Jj 

ITlntt  r"*","  **''  ":""  "'  ""^  -n^iderable  group  of  work- 
.  s  m  the  k,ng,lom  and  the  insured  man  out  of  work  miRht  I  vo 

r::::irisrh;:'-"''^--'^--''--'^ 
;u^^:ri::-u^:-^^^ 

benefic,anes  from  .seeking  work.  No  benefits  were  pai  „  kr 
the  act  durmg  the  first  week  of  nnemplovment.  I,  ,  d  r  "be 
el.g,ble  to  reee,ve  unemployed  l^nefi.s  I  w-orker  mus  tab  to 
find  work  a,  h,s  trade  an,l  he  must  not  refuse  suitable  work  whicb 

to  take  work  where  a  trade  dispute  was  in  progress  nor  wa 'h 
obliged  to  aceept  less  than  the  current  rate  of  wLes  for  Ih 
munity  in  which  he  was  at  work.  ^  """  '""'■ 

Under  the  operations  of  this  act.  in  l«i;i  about  two  and  one 

pounds  sterling  were  paid  out  in  the  way  of  benefits  to  thns, 

unemployed  during  portions  of  that  year  ' 

Although  the  compulsory  features  of  this  part  of  the  Vitional 

Insurance  Act  were  made  applicable  for  the  time  b  ing  on    t 

oi  tne  act  that  these  provisions  should  be  extended  as  rnnirll^  , 
possible  to  workers  in  other  trades,  and  in  orde    L    hTslh 
be  done,  ,he  administrative  authorities  were  authorised  to  extend 
the  system  whenever  they  found  it  needful  and  practicable  tc  do 

he  extension  of  the  unemployment  features  of  the  act  to  worker 
tn  the  munition  trades  and  to  certain  other  closely  allied  trades 

The  Health  Insl-hance  Act 

Parliament  in  the  decade  preceding  the  war  to  which  we  desire  to 
call  attention  was  the  National  Insurance  Act.   V.m      r7n  U 

side  :r'p :.  roHh"  """"■•"""  '"^""-^^  -  "■--  j-  -  ■ 

sidered.    Part  I  of  the  act  provided  for  the  compulsory  insurance 


20 


URlTlsIl    LAUU't    CONDITIONS    jiNU    LEUISLAriON 


against  sickness  anil  invalidity  ol  all  manual  laborers  between  the 
ages  ol  Iti  anil  To  and  for  persons  not  employed  at  manual  labor 
whose  annual  earnin);s  were  less  than  illio.  The  act  even  in- 
cluded casual  workers  and  home  workers.  The  benefits  under  the 
act  in  case  of  sickness  included  not  only  cash  Ijcnefits  but  medical 
care.  No  cash  lienefits  were  to  be  paiil  fur  the  first  three  days 
of  illness  and  in  no  case  ivere  they  to  be  paid  for  more  than 
twenty-six  weeks  in  any  one  year.  The  cash  lienefits  allowed  were 
Ills,  a  ivcek  for  men  and  7s.  lid.  a  week  for  women.  Hospital 
care  was  provided  for  in  cases  where  it  should  be  found  neces- 
sary. The  invalidity  benefits  were  to  consist  of  weekly  payments 
of  'is.  a  week  durinj;  incapacity,  but  these  benefits  were  to  cease 
at  the  age  of  70,  when  the  beneficiaries  would  be  entitled  to  old 
age  pensions. 

The  cost  of  thi^  extensive  system  of  sickness  and  invalidity 
insurance  was  to  be  divided  between  employer,  employes  and  the 
state.  Except  in  the  case  of  those  wnrkers  who  received  unusu- 
ally low  wages,  men  employes  were  to  pay  4d.  and  women  em- 
ployes :id.  per  week.  The  employer  was  to  pay  ad.  and  the  state 
2d.  per  week.  For  employes  whose  wages  were  less  than  2s. 
«d.  a  day  the  workers'  contributions  were  to  be  lessened  and 
those  of  the  employer  and  the  state  increased.  Special  benefits 
were  to  be  paid  under  this  act  both  fa  insured  women  and  to  the 
wives  of  insured  men  at  times  of  childbirth.  The  benefits 
granted  to  the  wives  of  insured  men  were  30s.,  and  in  case  of 
women  wage  earners,  an  additional  .'iOs.  might  be  paid.  These 
benefits  were  intended  to  make  it  possible  for  the  beneficiaries  to 
refrain  from  work  for  several  weeks  during  confinement.  Nearly 
14,000,000  persons  in  the  United  Kingdom  were  insured  under 
the  terms  of  this  act  during  the  first  year  of  its  operation,  1912-13. 


Effect  of  Social  Legislation  upon  Problems  of  the  War 

This  rapid  sketch  of  important  social  legislation  enacted  in 
Great  Britain  during  the  ten  years  preceding  the  outbreak  of 
war  will  suffice  to  show  that,  however  poorly  prepared  for  war 
the  country  may  have  been  from  a  military  point  of  view,  it  had 


TIIK   SOCIAL   BACKGROUND  JJ 

enacte<l  Icgislaiion  which  ha.l  the  t-.T.ct  „f  pr.nidinK  a  conski. 
erabe  measure  of  pro.ec.ion  to  the  worki,,;;  cia.ses,  an.l  this 
lefc'.s  .ition  has  unques.i.Hiahly  ma.Ie  ea,icr  the  task  „1  aieetinL. 
the  .l.mesttc  prol,lcms  which  have  ari.cn  ,luri„K  ,hc  war  It  is 
true  that  the  laws  have  Ik'CIi  t..,,  reccrtiv  enacted  tc,  have  oxertc.l 

V, taht  „f  the  ex,st„„.  «c„era.inn  „f  workers  s„  as  to  fit  the.n 
for  m.htary  service,  as  has  been  the  case  in  Germany,  where  laws 
of  a  smnlar  character  have  been  in  ,,..,erati,;n  f„r  ncarlv  a  Renera- 
t.on  Nevertheless,  the  l-nRlish  social  legislation  ^an  not  l« 
over  ,,oke,l  as  an  important  factor  in  l,elpi„K  to  snlve  the  social 
problems  which  have  Rr.nvn  out  of  the  war.  The  evils  which  the 
law:-,  were  mtencled  to  .nercome  were  not  of  course  those  orii-i- 
natmR  m  military  operations,  but  since  those  laws  ma.lc  it  easier 
for  the  country  to  adjust  itself  to  a  war  basis  and  t,.  prevent  or 
relieve  distress  RrowinR  out  of  the  unusual  activities  of  the  war 
period,  they  must  1«  considered  in  anv  attempt  to  describe  the 
social  con<lit,ons  which  have  prevailed  during  the  war.  Some  of 
them,  like  the  workmen's  compensation  and  the  unemployment 
insurance  laws,  have  been  modified  to  meet  the  new  conditions 
growing  out  of  the  war.  All  of  these  laws  will  doubtless  .show 
themselves  to  be  of  even  greater  use  in  that  period  when  the 
country  changes  from  a  war  to  a  peace  basis,  and  when  the  prob- 
lems of  industrial  readjustment  will  be  unusually  difficult  to  meet 


CHAPTER  II 

English  Industry  uid  Labor  at  the  Outbreak  ol  the  War 


Uneuployment  Statistics 

The  outbreak  of  the  war  found  most  British  industries  in  a 
highly  prosperous  conditicjn.  Employment  had  lieen  good  for 
three  and  a  half  years,  having  attained  its  maximum  during  the 
first  half  of  ]'.>i:).  Although  there  had  been  a  contraction  after 
that  time,  conditions  were  still  goixl  at  the  end  of  July,  11>U. 
Trade  unions,  having  a  net  membership  of  »,>tH,iJ4fl  in  July, 
reported  that  only  2N,()13  or  2.H  per  cent  of  their  memlicrs  were 
u.  employed  at  the  end  of  that  month.'  This  is  to  be  compared 
with  a  mean  percentage  of  four  for  the  month  of  July  for  fifteen 
years,  and.  with  the  exception  oi  the  years  VJli  (2.0  per  cent) 
and  11»13  ( 1.11  per  cent),  it  is  lower  than  for  the  same  month  in 
any  year  since  11)00.- 

In  coal  mining  71o,4.'>3  persons  were  employed  in  July,  work- 
ing an  average  of  .I.OO  days  a  week.  This,  after  allowing  for  the 
July  holidays,  is  a  record  which  compares  favorably  with  the  high 
level  of  l!>ia,  when  the  average  number  of  days  worked  per  week 
was  5.58,  "  the  highest  yearly  average  recorded."  '  As  compared 
to  July,  1913,  when  an  average  of  5.20  days  were  worked,  the 
reduction  was  only  two-tenths  of  one  per  cent.* 

In  what  are  known  as  the  "  insured  trades  "  (those  in  which, 
under  Part  II  of  the  National  Insurance  Act,  1911,  benefits  are 
paid  to  unemployed  workers),  where  the  number  of  insured 
workmen  amounted  to  2.325,598  in  July,  1914,  the  unemployed 
at  the  end  of  that  month  amounted  to  only  83,412  or  3.6  per  cent, 

>  Labour  CaaiUi,  19H,  p.  281. 

^  Stventeenth  Abstract  of  Labour  Statistics  of  the  United  Kingdom,  1915, 
p.  6. 
■  Labour  Caselle,  1914.  pp.  3,  282. 
« Ibid.,  p.  282 ;  Sevenlernth  Abstract  of  Labour  SlatisHcs,  1915.  p.  10. 


INGUSH    INDUSTRY   AND  LABOR 


•2S 


which  is  just  about  the  m««n  p«r  cent  for  the  eighteen  months 
ending  in  July  ' — a  very  prosperous  period  fur  these  trades. 

The  most  notable  exception  to  the  generally  good  conditions 
of  employment  was  that  of  the  textile  trades.  The  very  incom- 
plete returns  from  the  firms  which  report  to  the  Board  of  Trade 
showed  a  decline  in  the  numlier  of  work  people  emplo'  i-d  on  July 
25,  1!)14,  amounting  to  l.s  per  cent  of  those  employed  Jie  closing 
week  of  July,  IIM:).'  All  of  these  trades,  with  the  exception  of 
hosiery,  participated  i.i  this  decline  which,  while  not  remarkable 
in  itself, owes  its  significance  to  the  fact  that  these  trades  (except- 
ing woolen  and  hosiery)  were  the  ones  which  were  chiefly  affected 
by  the  industrial  depression  which  accompanie<l  the  outbreak  of 
the  war.  Unemployment  due  to  the  war  was  therefore  super- 
imposed uiwn  a  certain  <legree  of  involuntary  idleness  which  had 
already  existed  in  these  trades  during  times  of  [leacc. 

The  figures  relating  to  employment  are  not  the  only  ones  which 
tend  to  show  the  prosperous  conditions  of  labor  and  industry  dur- 
ing the  years  and  months  immediately  preceding  the  outbreak  of 
the  war. 

Production  of  Leading  Commodities 

The  production  in  Great  Britain  of  coal,  iron  ore,  salt,  tin 
ore,  steel  ingots  and  puddled  iron  liars,  measured  in  tons,  was 
greater  in  11113  than  for  any  previous  year,"  and  the  .same  is  true 
of  the  tonnage  of  merchant  ships  launched.'  Foreign  trade  sta- 
tistics, which  are  always  considered  a  barometer  of  English  indus- 
trial conilitions,  showed  that  the  total  value  cf  imports  into  the 
United  Kingdom  for  I'Jia  was  £7«l»,034,Ono,  which  represented 
an  increase  of  3.3  per  cent  over  the  figures  for  1012  and  13.1 
per  cent  over  those  for  1911.* 

The  total  value  of  British  and  Irish  exports  was  i:.'>2J,4Gl,000 
for  1913,  which  was  an  increase  over  those  for  1912  of  7.8  per 


»  Labour  Gaalle,  1914.  p.  282. 

'Scienleenlh  AbslracI  of  Labour  Statiltici  of  the  Unilid  Kingdom,  pp. 
30-36. 
'  Ibid.,  p.  37. 
«  Labour  Cazeitt,  1914,  p.  35. 


24  UKITISIl    I.A110R    CONDITIONS    AND    LECISLA-'ION 

cent  and  over  those  for  Iflll  of  15.7  percent.'  Although  the  year 
11M4  (lid  not  maintain  this  record,  the  decline  during  the  seven 
months  preceding  the  outbreak  of  the  war  was  not  considerable, 
amounting  in  the  case  of  imports  to  only  1.:.'  per  cent  of  the 
imports  lor  the  corresponding  months  of  1U1:J,  and  in  the  case 
of  exports  to  1.4  per  cent  of  the  amount  exported  during  the  first 
seven  months  of  VJIS.' 

Wholesale  ^nd  Retail  Prices 

This  prosperous  state  of  affairs  in  industry  was  quickly  re- 
flected in  both  the  wholesale  and  the  retail  prices  of  commodities. 
The  index  numbers  of  wholesale  prices  contained  in  the  report 
on  Cost  of  Living  of  the  Working  Classes  and  contiimcd  by  the 
Department  of  Labor  Statistics  of  the  Board  of  Trade  applies 
to  47  commodities,  weighted  in  accordance  with  their  estimated 
crnsumption  representing  all  classes  of  production.  The  year 
IIMIO  was  taken  as  the  basis-lOO.  The  weighted  index  number 
for  the  forty-seven  commodities  considered  collectively  showed 
a  .steady  increase  after  lltOS  and  in  IDlIi  amounted  to  110.5." 
Retail  prices  showed  a  similar  advance.  The  index  numbers  of 
twenty-three  articles,  widely  used  by  the  laboring  clas.ses.  were 
obtained  by  weighing  the  percentage  for  these  articles  in  accord- 
ance with  the  average  expenditure  on  these  articles  by  working 
class  families  in  l!l()4.  ileasured  in  this  way,  prices  were  114.8 
per  cent  in  l'.)i:i  and  IIG.S  per  cent  in  li»14,  as  compared  to  100 
per  cent  in  1!»00.  The  advance  was  even  greater  than  this  in  the 
case  of  bread,  flour  and  the  cereals,  for  imported  meats  and  also 
for  eggs  and  cheese.* 


Changes  in  Wages  and  Cost  of  Living 

If  we  turn  now  to  consider  the  changes  which  had  taken  place 

in  wages  during  these  years  of  advancing  prices,  we  shall  see 

that  the  British  working  classes  had  not  shared  to  the  full  extent 

» Labour  Gazette.  1914,  p.  35. 

'  Ibid.,  pp.  31S-J16. 

^Seventeenth  Abstract  of  Labour  Statistics,  1915.  p.  88. 

*lbid.,f.  102. 


ENGLISH    INDUSTRY    AND    LABOR  25 

in  the  prosperity  which  had  overtal<er  industry.  The  index 
numlier  for  wages  of  skilled  or  semi-SK,lled  workers  in  various 
trades  and  for  agricultural  laborers  ■;'ii,.r,  ..;:  advance  from  the 
base  100  in  1900  to  10(1.5  for  lid:,  .vhcn  all  s;,„ko.  of  workers 
are  considered  collectively.  For  af  ki-'ural  workns  the  corres- 
ponding numbers  for  these  years  ar  'iii-ll;  ■_':  f<  r  textile  work- 
ers, 100-111. (i;  for  workers  in  the  eiigmeering  ;i-ades.  100-105; 
for  those  in  the  building  trades.  100-1(}4.1  and  for  coal  miners, 
100-100.1.'  When  these  advances  arc  ccjmpared  with  the 
greater  increase  in  the  retail  prices  of  most  commodities  con- 
sumed by  the  laboring  classes,  it  will  be  seen  that  wages 
measured  in  purchasing  power  had  actually  declined  during  these 
years.  Such  a  statement,  however,  takes  no  account  of  the 
greater  steadiness  of  employment  during  prosperous  years  and  it 
would  probably  not  be  true  to  state  that  the  average  earnings  of 
the  British  laborer,  measured  either  in  money  cjr  in  commodities, 
were  less  in  1913  or  the  first  half  of  I'.IU  tlian  they  were  during 
the  early  years  of  the  century.  Some  further  compensation  for 
the  failure  of  wages  to  rise  as  rapidly  as  prices  is  also  found  in 
the  fact  that  in  all  trades  and  industries  the  nun.ber  of  hours 
worked  per  week  shows  a  steady,  though  by  no  means  a  uniform, 
reduction.' 

According  to  calculations  made  for  the  report  on  the  Cost  of 
Living  of  the  Working  Classes,  rents  of  working  class  dwellings 
in  London  had  declined  in  London  by  percentages  varying  from 
2  to  6  according  to  the  location,  and  had  increased  in  other  towns 
and  cities  by  percentages  varying  from  0.7  to  4.3,  according  to 
the  county.'  When  rents  and  retail  prices  of  food  and  coal  were 
ct;mbined,  the  mean  percentage  increase  in  the  cost  of  living, 
Iwtween  1<J05  and  1«12,  measured  in  this  way  varied  from  about 
8  in  London  and  the  southern  counties  to  2.fl  in  Wales  and 
Monmouthshire,  10.9  in  Scotland  and  12.2  in  Ireland.' 

Other  tests  of  the  prosperity  of  the  working  classes,  frequently 
applied,  although  not  entirely  satisfactory,  are  found  in  the  statis- 

'Sevenleenlh  /Ibslmct  of  Labour  Slalislici,  1915,  p  «6 
'  Ibid.,  pp.  79-82. 
•  Ibid.,  p.  122. 


26 


BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 


tics  of  savings  bank  deposits  and  of  the  number  of  pauper  de- 
pendents. For  the  United  Kingdom  there  had  been  a  steady  in- 
crease in  the  deposits  in  the  post  office  savings  banks  since  1889, 
when  they  amounted  to  £l:iO,ll,s,(il)j,  By  IIIKJ  they  had  reached 
a  total  of  £187, 248,107.  The  corresponding  figures  (or  the  trus- 
tee savings  banks  were  £51,404,1)211  in  ls:)()  and  £54,258,801  in 
1913.'  Possibly  a  better  test  of  the  extent  to  which  the  popula- 
tion in  general  shared  in  these  deposits  is  found  in  the  number  of 
accounts  open,  which  in  the  case  of  the  post  office  savings  banks 
were  8,040,080  in  18()»  and  l:i,l!l8,00ll  in  1013,  and  in  the  case 
of  trustee  savings  banks  were  1,001,485  in  1899  and  1,912  816 
in  1913." 

Reduction  of  Pauperism 

The  st.itistics  of  paupers  show  that,  exclusive  of  vagrants  and 
insane  persons,  the  mean  number  of  indoor  and  outdoor  paupers 
in  England  and  Wales  had  reached  its  maximum  in  1909,  when 
it  was  793,851.  lieing  a  ratio  of  22.0  per  10,000  of  the  estimated 
population.  By  1914  the  mean  number'  had  fallen  to  017.128, 
a  ratio  of  10.7  per  10,000.  To  a  slight  extent  this  reduc''on  of 
number  is  due  to  the  fact  that  in  1911  a  number  of  paupers  ceased 
to  be  dependent  on  poor  relief  in  consequence  of  the  partial 
removal  of  the  pauper  disqualification  from  old  age  pensioners.* 

Much  more  indicative  of  the  changes  which  had  taken  place 
for  the  better  in  the  condition  of  the  wage  earners  is  the  falling 
ofT  in  the  work  of  the  local  distress  committees  which  under  the 
Unemployed  Workmen  Act,  1905,  are  "  empowered  to  provide 
or  contribute  to  the  provision  of  work  for  unemployed  persons."  ' 

During  the  industrial  depression  of  llioS-09,  when  unem- 
ployment had  reached  a  stage  of  intensity  not  since  attained 
(except  for  a  very  brief  period  in  1912),  tlK-^e  distress  commit- 
tees in  Great  Britain  were  very  busy  in  receiving  and  acting  on 

^Set'CHIeeiifh  Abstract  of  Labour  Statistics,  op  326-327 

'  Ibtd..  p.  328. 

'M  the  mean  number  is  the  mean  of  the  numbers  relieved  on  Jar.iarv  1 
of  the  year  given  and  of  July  I  preceding,  it  is  clear  that  the  1914  figures  are 
unaiiected  by  war. 

*  Sevcftlccnth  Abstract  of  labour  Statistics,  p  331 

»  The  Labour  Year  Booh,  1916,  o.  31. 


ENGLISH    INr.lSTRY   AND   LABOR  27 

applications  for  rdief  by  worl<ing  m.n  who  were  temporarily  out 
o  worl<.  The  following  table  ■  ofTers  a  comparison  of  the  work 
of  these  committees  for  1908-09  and  for  19i;j.l4,  during  which 
por.od  there  had  been  a  steady  decline  in  the  work  and  T  ief 
^und  necessary  by  them.  The  figures  are  given  for  England 
Wales  ana  Scotland  considered  collectively,  although  the  dates 
returns  were  made  are  not  the  same  for  all  these  countries! 
VVO'JK  OF  DISTRESS  COMMITTEES 

Number  of  committees  who  received  applications  at  "°*'°'  ""•'■• 

some  time  dunng  the  year. .  ,  „ 

Number  of  appl.cat.ons  received ,'.■■'.■,■.■.':■"■  230807  «  ,?f 

Number  of  appl,ca„ons  considered  ehg.ble i.'.''  159303  ,411 

Number  „    applicants  provided  with  work „  3^  ll'^^l 

Number  o    persons  assisted  .0  emigrate nu,  dfr. 

Number  of  persons  assisted  ,o  move  ,0  another  area  457  'f  ? 

Cost  of  work  provided .,.„,,„  '^' 

Total  expenditure  ...                ^^t'"^  <«.220 

i419,081  iU4jm 

Labor  and  Industrial  Organizations 
One  other  set  of  facts  needs  to  be  given  to  complete  the  picture 
0   mdus.r,a.  and  labor  conditions '    ;    ,  ,t  Britain  at  the  outbreak 
of  the  war.    This  relates.to  the  g.-  ,d  strength  of  the  ,  ade 

union  movement.  It  ,s  a  well  kno  ..  .act  that  tTade  unions  in- 
re  se  ,n  numbers  and  financial  strength  during  years  ofTndus- 
.nal  prosperity  and  generally  show  a  diminution  in  the  number 
of  members  m  good  standing  during  years  of  indusTria 
depression  and  unemployment.  The  membership  of  British  td 
unions  had  with  few  fluctuations  shown  a  steady  increa  e  d  r  ng 
the  fifteen  years  ending  with  1913.  ^ 

In  1899  the  number  of  trade  unions,  exclusive  of  a  few  unim- 
portant ones  for  which  the  figures  were  not  available  Z  iTo 
and  their  combined  membership  was  1,860,913  Bv  MlV.h- 
number  of  unions  had  fallen  to  1,135,  chiefly' as  a  result  of 
amalgamation,  but  the  total  membership  had  more  than  doubled! 

th;?„?;fgove™menfbordr'fo"''En»J3    distress   committees    issued   by 


28 


BRITISH    LABOK    CONDITIONS   AND    LEGISLATION 


being  ;j,!lil.'i,7«(i  at  the  close  of  that  year.'  This  was  an  increase 
of  21. S  per  cent  over  the  membership  lor  I'JU'.  "  This  member- 
ship," .said  a  writer  in  the  Labour  Gazette,'  "  is  greatly  in  excess 
of  any  hitherto  recorded,  and  the  rate  of  increase  is  little  below 
the  high  rate  of  1011  (2;i.4  per  cent).  The  expansion  in  mem- 
bership was  common  to  practically  all  trades,  but  was  especially 
marked  in  the  transport  and  general  labor  groups.  Some  of  the 
increase  is  attributalile  to  trade  union  activity  in  connection  with 
the  National  Insurance  .Kct." 

"  The  total  membership,"  the  writer  goes  on  to  say,  "  of  all 
trade  unions  in  1U13  increased  by  109  per  cent  compared 
with  1904  and  by  175.1  per  cent  compared  with  18(15,  when  the 
membership  was  lower  than  at  any  time  during  the  period  1892- 
191,3,  for  which  the  Department  has  comparable  statistics."  ' 

One  of  the  most  remarkable  facts  con-.cected  with  this  move- 
ment was  the  increase  in  the  number  of  female  members.  Their 
numbers  had  grown  from  129,084  in  1904  to  .118,007  in  1913, 
an  increase  of  176.4  per  cent.  "  Nearly  three  quarters  (258,732) 
of  the  total  female  membership  were  engaged  in  the  textile  trades, 
the  cotton  industry  accounting  for  212,534  or  60  per  cent."  ' 

In  discussing  the  strength  of  trade  unionism  at  the  outbreak  of 
the  war,  mention  should  be  made  of  the  Triple  Alliance  of  trade 
unions  formed  in  1914  between  the  Miners'  Federation,  repre- 
senting 800,000  workers,  the  National  Union  of  Railway  Men, 
with  a  membership  of  300,000,  and  the  Transport  Workers' 
Federation,  comprising  250,000  v/orkers.  The  purpose  of 
the  alliance  was  to  take  joint  action  on  matters  of  a  national 
character  or  those  vitally  affecting  a  principle  which  necessitated 
combined  action. 

The  significance  of  the  federation  lay  in  the  fact  that  all  three 
of  these  powerful  organizations  are  formed  along  industrial  lines, 
that  they  represent  the  workers  in  ii..;ustries  in  which  the  public 
is  vitally  affected  and  that  syndicalist  views  have  permeated  more 
or  less  the  rank  and  file  of  the  membership. 


*  Seventeenth  Abstract  of  Labour  Statistics.  1915    d 
»  Labour  Gazette,  1914,  p.  282. 
"rtiU,  1914,  p.  283. 


197. 


ENGLISH    INDUSTRY    AND    LABOR  29 

December,  19U.    The  alliance  has  already  taken  steps  to  secure 
omphance  with  the  government  promise  that  trade  unim,  nra 
ces  and  customs  will  be  restored  with  the  coming  of  peace  and 
.ha   demebdization  shall  take  place  in  such  a  way  as  to  prevLt 
period  of  unemployment  and  low  wages  ■ 

The  organizjtion  activities  among  the  working  classes  had 
found  Its  counterpart  among  their  employers.  How  hlTt 
proportion  of  the  employers  were  organized  at  the  o  b  e  k  o 
he  war  we  do  not  know,  but  in  1914  there  were  l,5,,s  o  gTni.a 
tions  o  employers,  of  which  ninety-eight  were  ederatfon  or 
nanonal  associations  and  1,400  were  kfcal  associa  ions  ™  e  e 
wi^h    ndi'T    f  T''  "°^^  organizations  which  deal  -lirec  ly 

oi^nzecnn'te"  '"°"-  ,''"''''''"'  ''"'  '"'  '^e  most  pa  t 
organized  in  the  same  trades  and  along  the  same  lines  as  were 
rtieir  employes.    Thus  490  associations  of  employer    w  re  in  tie 

b"uiS  i::'::.^"'  ^"  -'"-  ^" ''-  --•  -^^---^  -^  ^- 

That  these  organizations  of  employers  and  of  their  work 
people  existed  for  the  most  part  to  deal  on  friendly  terms  vih 
each  other  IS  shown  by  the  fact  that  in  1910  an  Les^ga  '  n 
ma  e  by  the  government  showed  that  at  least  1,696  trad  ^  :e" 
ments  of  one  sort  or  another  were  in  existence  to  govern  the 

o  oTer^-:::  ?7' -^"^  *"'  ™'""^"-  -^^^  •" '■  --"^ 


Industrial  Disputes 
It  is  perhaps  to  he  expected  that  with  a  great  increase  in  the 
number  of  trade  unionists  there  should  com'  an  eflon  To  make 


30 


BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 


the  potential  strength  of  the  unions  etTective  in  securing  increases 
in  wages  and  improvements  in  worliing  conditions.  This  expec- 
tation is  fully  realized  when  one  consults  the  record  of  industrial 
disputes  fo'  the  vears  preceding  tlie  war. 

In  its  review  of  "  Lajor  Disputes  in  lUW,"  the  Board  of 
Trade  Labour  Gazette  of  November,  IttU,  has  this  to  say  con- 
cerning conditions  during  these  years : 

The  year  19U  was  the  third  of  a  series  in  which  a  considerable  number 
of  important  disputes  have  occurred  SiJigle  years  in  the  past  have  sur- 
passed one  or  more  of  these  years  in  respect  of  number  of  disputes,  num- 
ber of  work  people  involved,  or  aggregate  duration  of  ilisputes ;  but.  so 
far  as  the  available  statistics  shi „■,  Iherj  has  ncv,.r  before  been  a  series  of 
three  consecutive  years  marked  as  a  whole  by  such  widespread  industrial 
unrest.' 

A  study  of  the  strike  statistics  shows  that  practically  all  the 
main  groups  of  trades  were  affected  by  the  increase  in  the  num- 
ber of  disputes  or  in  the  number  of  workers  affected  b>  iliem.  In 
view  of  the  general  industrial  prosperity  and  of  the  increase  in 
the  cost  of  living,  it  is  to  be  expected  that  demands  for  advances 
in  wages  would  be  the  cause  for  the  majority  of  disputes  during 
these  years.  Disputes  over  wages  explain  the  suspension  of  in- 
dustry by  40.1  per  cent  of  the  workers  directly  involved  in  trade 
disputes  in  1911,  82.8  per  cent  in  1912  and  54.9  per  cent  in  1913.' 
In  the  great  majority  of  cases  the  workers  were  at  least  partially 
successful  in  obtaining  their  demands.' 

The  period  of  intense  industrial  di-'urbances  did  not  come  to 
an  end  with  the  dose  of  1913,  but  continued  into  1914  down  to 
the  very  outbreak  of  the  war.  The  number  of  disputes  occurring 
during  the  seven  months  January-July,  1914  (772),  was  some- 
what short  of  the  number  for  the  same  months  of  1913  (852), 
but  the  number  of  work  people  involved  in  1914  (412,131)  was 
only  a  trifle  fewer  than  in  1913  (413,019),  while  the  aggregate 
duration  in  working  days  of  all  disputes  was  much  larger  in  1914 
(9,107,800)  than  in  1913  (6,339,400).' 

>  Labour  Casttte,  1914,  p.  398. 

« Snynleenlh  AbslracI  of  Labour  Slalistks,  1915,  p.  190. 

"  loia.,  p.  191. 

«  Labour  Gazette,  1914,  p.  308. 


ENGLISH    INDUSTRY    AND    LABOR  31 

^    The  brief  Statistical  survey  of  industrial  and  labor  conditions 
in   mgland  during  the  months  and  jcars  immediately  preceding 
the  outbreak  of  the  war  which  we  have  just  given  is  probablv 
sufficient  to  show  that  it  was  on  the  whole  a  "  merrie  Englande  '" 
upon  which  the  ravages  of  war  began  to  fall  in  August,  1014 
Ihe  country  had  been  enjoying  prosperous  conditions  for  several 
years  and  while  a  retrograde  movement  had  Ijegun  during  the 
latter  part  of  linii,  which  had  continued  up  to  August.  iai4  the 
decline  had  not  been  great  and  there  was  as  yet  no  indication 'that 
^fu.,'"       '■'  '"'""'  "'■  P^'-'nK"!  industrial  <Iepression. 
While  It  seems  evident  that  the  laboring  classes  ha<l  not  shared 
.n  the  prosperity  of  the  industries  to  the  same  extent  as  had  the 
shareholders,  owing  to  the  fact  that  the  retail  prices  of  those 
commodities  which  enter  most  largely  into  the  wage  earner's 
consumption  had  risen  more  rapidly  than  had  the  laborer's  wa-es 
yet  a  full  consideration  of  such  matters  as  the  re-nilarity  of  em- 
ployrnent.  the  reduction  of  hours  of  work  and 'the  growth  of 
social  msurance  vvarrants  the  statement  that  laborer  as  well  as 

r«^'f  ol        "'f "'  ^-   '^'  '■"''"^•"■^'  P'°^P'"'y  °f  the  years 
1911-1914,  even  though  they  had  profited  in  an  unequal  degree 


CHAPTER  III 

Industrial  Panic  and  Readjustment 

The  first  effect  of  the  war  on  industry  was  the  creation  of  a 
feeling  of  uncertainty.  Mr.  G.  D.  H.  Cole  in  his  book  entitle.l 
Labour  m  War  Tiiiw'vieU  describes  this  uncertainty  in  the  fol- 
lowing terms : 

Whtn  war  broke  out,  the  workers,  .he  opitaliM.,  and  the  government 
«cm  to  have  been  equally  in  the  dark  as  to  its  probable  effects  upon  industry. 
No  one  knew  what  would  be  its  reaction  upon  the  credit  system  and  on  ex- 
ternal trade;  no  ..ne  knew  how  far  the  home  demand  was  likely  to  suffer 
contraction:  no  one  foresaw  the  scale  on  which  the  war  would  be  carried  on 
or  the  immense  demands  it  would  make  upon  production.  It  was,  of  course! 
anticipated  that  a  tew  industries  ministering  directly  to  military  needs  would 
be  busy  beyond  their  wont;  but  even  here  nothing  like  what  has  actually 
man  ,.""  ""T't  '"  ""  '"''  •"''  °'  '^"Kust.     Dn  every  side  people 

t^e  LL     7  ""'f  """.  '""=  ""  '"•"•"'  *°  •"  "  ""y  «'"'  dislocation  of 
the  industrial  machine,  if  not  a  complete  collapse. 

The  way  in  which  this  uncertainty  first  communicated  itself  to 
trade  was,  of  course,  through  the  medium  of  retail  prices   espe- 
cially the  prices  of   food.     Food  prices  began  to  advatlce  on 
August  1,  but  the  sharp  rise  took  place  after  August  :!    which 
was  a  tenk  holiday.'     By  August  8  prices  had  attained  their 
maximum  for  the  month  and  were  then  on  an  average  15  or  16 
per  cent  higher  than  the  level  for  July.     This  advance  was  gen- 
eral, but  by  no  means  uniform  for  the  various  commodities  being 
only  one  per  cent  in  the  case  of  milk,  whereas  in  the  case  of 
sugar  tt  was  8.3  per  cent  in  the  towns  of  over  .M.OOO  inhabitants 
and  86  per  cent  in  the  smaller  towns.'     After  August  8  the 
prices  of  most  foods  began  to  recede  and  by  the  20th  of  the 
month  the  percentage  increase  over  the  July  level  was  11  for 
»  Page  62. 
'  Labour  Gazelle,  1914.  p.  323. 


INDUSTRIAL   PAMC   AND   READJUSTMENT  3a 


Growth  of  Un  vitLo,  ment 

Au««.  ,.,  ,he  „„„  .ason  in  ce.ain  in.u.He.  as  t.l'.ln  ' 

»nttr,  rtf„  specifically  to  " maxi^^rVc/^Lfn "'"""■."','''''''''•  Labor 
the  Rovcmmcnt  and  having  ajsiste  1  in  ihl  All  < ",''  '/"'.""lly  •■  fixed  "  by 
AuKiis,  panic.  Thus  ,he  UbaurV^arBlal  ij  fi  l/,™'',!'"'^?'''  '""""■inR  the 
'".  '""'I  ("""S  took  place  said  (p  «"  °  H„i  hi  ![  '''°"'"'*'  "''»'  ''''■inKes 
with  by  the  Kovemment  and  by  lalmrV  After  ih.l't"  '""""""  ''""  ''"It 
he  purely  panic  rise  of  the  first  weeks  of  Au„  ,J  K^c"  ""'°"  '"  ■^htcking 
the  Kovcrnment  retired  from  the  scene"  UW^l  hy/^'-l!  maxima  prices, 
p""-.  p.  119)  said:  •■The  15  per  cent'  inc7„!  i""  '^°''  ."-"I'our  ,„  !/■„; 
August  was  largely  a  panic  increase  I hcT""'  J^T'""  ""•  fi"t  week  of 
ernmenl-s  action  i„  fi,i„i  Jaxi^,™  "''  "^^  '^'"■'^'"■"'  P»"ly  by  the  cov 
evaporation  of  the  prnic '■  ""■"  """'•  ^"'  "'"  >"■="  by  the  nntfrai 

men./lTrJ"e'rs':„7'pS;;.°iL',''5a,"'?:i,eTfoT;^  1  "^'""■?"   "^   «-ern- 

ps7ro^^,\1.S'mel,Ttna5?^  °'   "''"^"''""5™ 
Supplies  Act.  1914    pr„vid"ng  that  "J'.b;"R"°r''i'  ^'"bboWiSg  o  >„„3 
that  any  foodstuff  is  being, mVaso„ablvJ^f,bh°u''<  °'  ^J'"''  »'=  »'  "P'niCn 
If  so  authorized  by  His  Ma  e,?v'.  P,'^  withheld  from  the  market,  thev  mav 

«WCls  any  particular  kind  if  Yood^tSl'Tn"  '"""''  «""»">■  "'"re': 
proclamation,  take  possession  of  any  suonlie,  „f  (  "J"?'; '"■°''''"'  by  the 
late,.  payiuK  to  the  owners  of  the  jupoires  ^„rh  „^'''"''''  '"  ^bith  it  rc- 
agreement  be  reasonable."  etc.  fS  4  S  Geo  ?  .  fii"  ?•'  "" '  '"  '^''"'^t  "I 
ever  made  under  this  power.  (,W«,mS  ^/'tL  "'  ^'l  P™cl™ation  was 
The  act  Itself  was  repealed  on  A°imTt  2«  iH^'l'"''' /■'''"''•''''»■  "■  "'■) 
Articles  of  Commerce  (Return"  etc  X  Wli^ffl  ^""«e '=■""  by  the 
later  act  was  put  in  force  by  Proclamarion  „. '  '  *  i'^"-  '•  c  «S).  This 
^ijT'T'".  '-'ffWt'io..  P  96T  and Tw,.  /"'""ber  17,  1914  iMamal 
that  the  Board  of  Trade  entered  i'ntn1>„  "  "PP>rently  on  its  authority 
refiners  to  prevent  speculation^n  ih?.  "«r?™«nt  with  the  leading  sugar 

reasonable  bounds,     (Porlim  F«^J  p°^""^"li"^  ^°  kwP  its  price  w,"hfn 

September.  1914.  the  Board  of  Trade  nib  isbed  ISj,^-^  '"August  and 
retail  prices"  for  various  food  roLioditi.!,,  J'  i,  °' '"■""'''  ""imum 
advisory  committees  of  retail  traders  psII?  m""  ^f'  ''commended  by 
PP.  283.  323-324)  but  there  aMear.,  i.  reasonable.  (Labour  Gacelte  1914 
<o  compel  their  adoptiSrivTeHMers      "'  ''"''  """""''  •»"  mo^al  suasion 


34 


BKITISII    L.MKIK    CUXDITIONS    ANU    I.KGISLATIOM 


millinery,  M.lnnng  ami  the  liU-.  In  uihcr  hulustries,  notably 
cottun,  the  adverse  effects  of  the  war  were  added  to  a  trade  de- 
chne.  which  had  already  been  marked  for  some  time.  In  still 
other  industries,  especially  in  the  north  of  EnKland.  employes 
were  absent  in  .\iiKtisi  ,.n  their  holiday  vacation.'  Certain  indus- 
tries, or  rather  certain  establishments,  profiled  immediately  on 
the  outbre.-.  of  the  war  by  Rovernment  orders.  This  was  notably 
true  o.  sb  .luiblmK  and  of  certain  establishments  in  the  engineer- 
inK,  saddlery  and  harness,  boot  and  shoe,  military  clothing  and 
hosiery  trades,  where  some  overtime  was  worked.'  .Vside  from 
these  special  establishments,  however,  if  may  be  said  that  the 
general  effect  of  the  war  during  ..\ugust  was  to  lessen  employ, 
ment  in  nearly  all  industries. 

Unemployment  in  t...  .  ade  unions  which  make  reports  to  the 
Board  of  Trade  took  a  sudden  upward  leap  from  -8  per  cent 
o  the  membership  at  the  end  of  July  to  7.1  per  cent  at  the  end 
of  .August  .At  the  end  of  August,  1!)13,  only  i  per  cent  of  the 
members  had  been  unemployed.' 

The  total  number  of  people  remaining  on  .„  registers  of  the 
British  labor  exchanges  for  whom  no  work  haa  teen  found  was 
1.I4,.,S0  on  .August  14,  as  compared  with  112,622  on  Tulv  17 
and  with  89,049  in  August,  19i:i.'  ' 

0  ^'r,  'i'n.'"^."''  '"''''  ''■'""  "''  ""'"''"  "f  *"'"--^d  P'°P''  was 
-,.341,508,  6.2  per  cent  of  the  workers  were  unemployed  at  the 
end  of  August,  as  compared  with  2.6  per  cent  at  the  end  of  July 
and  3.1  per  cent  at  the  end  of  August,  19i;).' 

The  figures  relating  to  unemployment  do  not  begin  to  show  the 
fu  1  effect  of  the  crisis  upon  employment,  however,  since  in  manv 
mdustries  and  establishments  the  workers  were  put  on  short  time 
mstead  of  being  laid  ofif.  This  was  especial'v  true  in  the  tin  plate 
and  steel  sheet,  engineering,  printing,  bookbinding,  building 
pottery  and  in  all  of  the  textile  trades.  This  resulted  in  a  greai 
decrease  m  the  earnings  of  the  workers.'  In  the  c.  -ton  manu- 
facture, where  conditions  were  especially  bad,  earnings  during 

'  Labour  Gazelle,  1914,  p.  321. 
'  Ibid.,  pp.  328-342. 
'Ibid.,  p.  348. 
*lbid.,  1914,  p.  322. 


iN-msraiAL  panic  a.vd  .eadji-stment  35 

one  week  in  August  were  'is  i(  t>,r  ^.„.  1        l 
ponding  week  in'julv  and  .U.?     ",'::,'  ^'f/'^^'--' 
rcsponding  week  in  August,  l!,i;.  ■  "^''"  ^'"  ""  ^'"- 


Methods  of  AFFORDi.vr.  PfBuc  Relief 

,h,V".t"  ""  ''"""'''''"'''  i'  i«  P"h.-,ps  not  surprising  „,  fi„H 

I    f      Fnr""  T  '"""T  '"  "-^  ""■"""  °'  P-ons'se  k    ' 
relief.     For  workers  m  the  seven  "  insured  tra,  es  "  ,here  was 

oenehts,  payalilc  under  the  provisions  of   FSr,   11   ,i-      '    , 
ment)  of  the  Xa.ional  rnsurancc  .  c     ,/""„,    f  I';:!"""" 
r%n,en.  henents  amounting  to  1.,,..,  Jere^^ ,    n  ^X 
four  weeks  end.ng  August  28,  ]0H,  as  compared  with  10^730 
cla,n,s  made  during  the  five  weeks  ending  July  31,  an  1  th      ve 

™n.erofc,aimsma;;:73^i;2i,:^:;:e:::;::.:ts 

weekly  amount  of  benefits  paid   rose  to  £v>-ZT5 

—  conditions  in  t^se  .::::er  t^:;^^'"-:;:::: 
Hai^rsr-:^:-— ;;-h. .. 

comm„         ,,  ,,^.^  ^^^.^^^^^  ^^^^   ^^^^.^^^  w,'h  sJ tn 
he  end  of  July,  1914,  and  fifteen  at  the  end  of  Atigust  1,M       o 
lose  operating  at  the  end  of  August,  24  had  opened  teire^s 

ters  dut^ng  the  month  owing  to  the  disturbed  state  of  emplov^ent 

ri^U;rj:,:rres:r^^'--f-' 

OerSn  'b!  '"       '""'"  ^-"P'^J™^"'  "'as  provided  for  ISO 

The  numbe^r'"™'  T'"'  """'"'"'  ^""  '"-'  -'horities.= 

1  he  number  of  pauper  dependents,  which,  as  we  have  observed 

had  been  steadily  declining  since  1909,  ,00k  a  sudden  leap  upward 

»/w""; 'Jlf'-'  '""•''■  322- 
'!M.,  p.  387. 


BRiTlSlI    LABOR   CONDITIONS   AND   LEGISLATION 


36 

was   .n    .h,r,>.   o.„   ,„■   .hir.y-flv.   of    the   url>a„   J,Z""Z 

The  distrcs  produced  l.y  the  sud.len  disturbance  of  industrial 
co„du,ons  due  to  the  war  was  <uch  that  the  War  Ofti  e  fou  Jk 
necessary  n,  Au^u^t  to  issue  to  the  cntracu.rs  w^,  ii^, 
;-!".  suggestions  intended  to  minin.i::r:r  ^  .^  ^li;;^ 
n  ent  and  a  war,nn«  no,  to  allow  sweating  con.litions  to  Jmer  mo 
ti.e.r  subcontracts.  The  following  are  the  wonls  nf  hn  u 
randum  sent  ou,  by  the  War  CJfHce: "  '^'""'"■ 

"Pon  ,1,.  f„ll„wi„„  ,u„„eM,„,^,  N  .       *■  ""'"•■  "•'■■<""""  .hall  ac, 

(»   Rapid  <l.livcry  "o  bTalll  ,    h     ^      1"  "  ""'■'  ''"'"""'"^  ""•  -— 

»ity  of  eff„,i„K  delivery  with  7^^  ?  ■"  '"  "'"  1"">'""""'  "ecei- 

.rm,..     (2,    S.,"h.„l,:;':,7::;;;'„„'.^'„r-:  3'-_  ;-  .He  necs  „,  ,H. 
facturtrs  situaltd  in  dislricl,  wher,  .,r/„  "  ""'"'''''  "»""- 

contrary  ,o  ,h.  „.„al  c„ ndU  „ns  of  a™  """"Woyn^nt  «i.„.  al,h„„„h 

present  cri,i,,  and  it  i,  de,irM,o  ,„.  t""'  "  "'"'•'">'^'  •<"""«  .he 

eondilion,.  vij-CaVVhel  '"""'■"ue  such  subleUniR  on  .he  f„ll„wing 

due  execution  of 'he  coLl'JZ'T  '°,"'"T  ""'''  "^l"'"-"''  ior 
every  re.pect      lb)  The  f,f  ",        '"'"'"»■  ''"'"  '"■■  'I':"""''  ^",1  in 

•ion 'of  .hV',a.a«e;::h  „rf:b,:,r;  'thc"''  "'"'^  -^  "■'■  --^ 

•poniible  for  sublet.ing  only  ,o  n,a„,  fl  T  I     "'"  ""'"■«'<>'•  •»  ho  re- 

the  „,her  proyision,  "?  the  flir  JZ  "'"  "^  *'"  ""''"'""  '"  "^serye 
.11  firms  to  whom  i  T.  propos  d  To!.!,  """V  ''{'''"'"  '"-^  ""dresses  of 
before  work  is  .c.nally'Zn     „  ".      L"°*  '"  "  '"'""'""'  '"'  '""P™™' 


Reduction  iv  Number  of  Trade  Disputes 
One  of  the  important  immediate  effects  of  the  outbreak  of 
pmes.     In  Jul>,  iftu,  n,nety-„me  trade  disputes  had  begun  in 


IVDl-STRIAL   PANIC 


AND   READ/l-STMEXT 


..t.i»    nr..-\it 

putrs  which  began  hi  ,1  r.       '"  ""'""'  "'"''^■'''  '"  <"- 

been  the  .n,.re  or'  lev  '  "P'-™'''l'totc<l.     n  sc-ems  ,„  ,nve 

press  <len,an,ls  for'  hi     il   IT'"""-;"  ''''  "^  "'"  ^'  •'"-<■  .o 

■n  most  disputes  then  in  nr  ^""emcnis  were  reache.l 

'eaclersmetinctne  n  t~";"V'"'''"  '''  '""^  ""-" 
however,  that  the  disp  .  s  .  f".  X,  ^""--•^-  "  ^-^  -i,,. 
sultation  of  the  rank  an.l  fi  e  "  r„f  /h  '"'"'''^"'  "•'""""  ^""- 
in  the  main,  true  of  the  set,  1  I  ""'on.sts).      This  was. 

dispute,  where  an  1 ''eem  '  ";"'  "'  't"^  ,'-""''""  '.-1''"'.  trade 
exectives  of  the  unionTaL  VT  '"  ""  '"''"''  "  '»'  '"e 
along  the  lines  of  a  proposed  a"  'T'""^""'  ='^^-»'-- 

-een  rejecte,,  hy  a  voHf The  rrlr '"  "'""  "'"'  ^"'•■"'  '■•-" 

Tr^"ef  "^:::rC:"'"T  ^?;'""'r  '"^  -^-  •^"-"  -<  "-e 
Unions.andtheLai:.  nartv,Hnr7t    f^''"^"'""    "f    Trade 
part>  adopted  the  following  resolution; 


fCoI,:  io6, 


OK)'  in  If  Of  r™ 


""  ^'■'"'"'  J^f"'  S™*,  1916,  p.  22. 


3S  BRITIS,,    LABOK    CO.NI.IT.ONS    AND   LEGISLATION 

fell  from  l..-t27.8(m  i„  J„ly  ,o  r>2«,«oo  in  August  with  a  further 
decline  to  22«,800  in  September.'  """^ 

Rapid  Recoverv  of  Employment  Conditions 

anX";ni;r;:rto  f /:^r:°  '■'• '-  ^— ^'  -  - 

to  conditions  at  thj  cf^        J  ^a^d  rorsTt"^  '''"'™"="' 
reported  conditions  for  December'  ^"  """''"^'^ 

In  the  insured  trades  the  rate  nf  ,«-~ 


I. 


July   Per  cent 

August   [[[ ^-^ 

September    ^ 

October ^"^ 

November   ^-^ 

December    .  ^'^ 

3J 

mem  w:n;sf;he  tr""  'T"'  ■"  '"^  ""'■""'-  °f  ^pv 

"  ioJoKr  Go-rt(f ,  1914.  „     34^  jg, 

i/W"  fjfi.^"-  3'3'  ■•29:  1915   pp   i-2 

"/»<  f914,  pp.  282,  323,  JJS.jSS.'  is?';  1,15,  ^  2. 


INDUSTRIAL    PANIC   AND   READJUSTMENT  39 

The  first  trades  to  recover  were,  of  course,  those  working  on 
war  ma.er,al,  such  as  the  engineering,  shipbuilding,  saddferv 
furn  ture,  bit  and  st.rrup,  woolen,  hosiery,  leather  and  boot  and 
shoe  trades.  Sonie  e.stablishments  in  these  trades  began  t  prosper 
even  m  August,  but  the  recovery  is  much  more  marked  in  sjptem 

Board   TtT""^  '''^  '"^  '°"°^'"S  appear  frequentlyTn  the 
Board  of  Trade  reports  for  the  various  industries : 

gineerin,  trades:  wL  MH  and    di^c, )  "  Ther  ""  °"7  r^'™"'     "'"- 
n,e„.  on  ,he  south  coast,  thougMt'/rllnt  Iorw7s\H  r''"sH"rS'" 

was  ve..  .ood.  ^Zzzi';:^  ^^T^-^i;,  ^^L^TT'I 

month  ago      (wloTen   trade  )T  tZ  "7""*  "'"■  **»  ""  «"'  ' 

cTano„ngrdenU"idranrwLtr^:;:ira,::;^'  -^  - 

It  was  not  until  a  month  or  two  later  that  this  prosperitv  of  the 
r„i  r/.h'"'"  '"uT-  '"""  "'°  "'^  """^  '"''"^"-'  -'^'ch 

s    el  work    hV,:         '""  "'*"''"■'•     "^  O^*"**^  "^^  !™n  -' 
steel  works  had  befrun  to  receive  government  orders.'  in  the 

'  /Wrf..  p.  .w. 
•  rtW.,  p.  371. 
"  /Wrf.,  p.  .OT. 
•ftW.,  p.  402. 


i;     I 


40  BRITISH   LABOR    CONDITIONS   AND   LEGISLATION 

were  luTnin,  .Heir  ajn^t  «  X    ZnTrtr;  '"^^ 

dislocation  on  the  outbreak  of  war   h       Tu'"""'  ''""P""^ 

of  .his  cause  wa"m  tlZZT  ^^  ■''  ''"'  '"^  '"""^"« 
such  industries  as  Z  ^^^  ZTZ  IT'T"''  '"  '" 
and  on  the  docks."    By  February Tntc  ,^       '  ""'"*• 

tain  trades  seems  to  hi    ,    ™">^'  '9'S.  unemployment  in  cer- 

paign,  for'i™  ;  a  L  dr/esLVt'rad"  "^  'TT'  '''- 
largely  employed,  such  as  the  tin  p  a,e  ■   br^k '"  T  "'.r"  ="" 

••  Gasette, 


Ibid.,  p.  408. 


,  p.  406. 


'  Ibid., 
'  Ibid., 


P.  411, 
p.  341. 


Ibid.',  p.  33l' 


'Ibid. 
^Ibid.. 
'Ibid., 
'  Ibid., 


P.  377. 

p.  400. 

p.  402. 

p.  413. 


°/Wrf.,  p.  415! 


'Ibid.,  1915.  pp.  89,  99,  95. 


INDUSTRIAL   PANIC   AND   READJUSTMENT  41 

These  trades  were  as  a  ml*.  i.- 

factorits   having  double   shif,.'  i"*  '".'  "'"^'""""  Possible  hours,  many 

Sundays  as  welfasweckdavs'.h"'""^  '''>'  ""''   "'«■"•  »"<•   "orkinron 

Slow  Recovery  in  the  Women's  Trades 

seven-.y  upon  .he  women  than  upon  .lie  men  ■""'  ^"^'" 

Js^w^ect:-'^  ce^Ll:  '^^r^JT Z  T-  '-  *H 
taxation  and  partly  to  economies  voL,aHK  adoc ted  th"""!f 
•ng  power  of  the  people  was  reduced  and  tt  rel  .t^^^^^ 
form  of  a  lessened  demand  for  Invuri..     r.       ^"  ,'^"°"  '"^K  '"e 

.heir^X^r  rant:  sh:rt™m:^  Em'l  ^"^  ^'"''""^^^  ^'-'■ 
.  towns^  even    the   laundry   workers    felt    the    effect   of    sh^rt 
The  review  of  the  work  of  the  Board  of  Tr,^    i  u 

I  ijf o«>-  Gaselte.  1915,  p.  3 

Unemploymen,  Among  Women  in  October,  1914,"   IM..  p.  395. 


MliSi 


I'  I 


42  BKITISII    LABOR    CONDITIONS    AND   LEGISLATION 

aecreases  for  the  rema.nmg  montljs  were  as  follows:  ■ 

^\^.z ^  "- 

Government  Efforts  to  Relieve  Distress  Due  to 
Unemployment 

result' of'"^  "",  "  ^""'^  "'"'  °'  '"^'^"^  "^'^  "l<"y  to  occur  as  a 
result  of  unemplojment  during  the  war,  the  Prime  Minister  on 

ee    wL;':"  '"^  '"'"'"  '^"«"^'  '^  appointed  atmU" 
December  11    khj     ..       '"^"^^Po"    of  the  committee  made 

SS»™ ',  ""*;': »""'"'  •'•>*»B  ''■p"~ « " 

r*r4r.t.ritr  f — •  *™- 

previously  stated   the  policv  Jth  '™'  anticipated,  and,  as 

l^our   Gacelte.    1915,  p.   4J 
of  .?r?Jl™  ?Cd^^;5£?J,^D°.^^i'«3,!-,^,t.'^vern™e„,  Board  Ari..,  „„. 


INDUSTRIAL    PANIC    AND    READJUSTMENT  43 

I  he  committee  was  able  to  report  that  it  hi,l  n„.  ., 

i-^iai  amount  of  such  p-rantc  •<»  *^.   t\         , 

£158,206.  ^  "P  '°  December  31,    1914,   was 

The  committee  further  reported  that  "the  effects  of  fh. 
on  employment  have  been  more  severely   felt  in  tb!  . 

women  than  in  the  case  nf  m,„  ■•      a  7-  '^"^  '^^'^  "' 

Women's  Fn,  1  "^  '^'"•■•^'  Committee  on 

women  s  Employment  was  constituted,  which  not  onK-  1 

m^mm 

-;^/or  the  purpose  of  copi^rrdist:^^:,:::^^ 

The  committee's  mention  of  having  semr^H  ,h. 
relieve  rlistrpct     Ti,    v       j  "  snouw  be  necessary  to 

»Mi5°V"  5'"  ^^P"'''  Work,  etc..  p  6 
EIF,cl,  of  ,ke  W^,  upon  Wom>n  andCufdrcn%S.fi^\^'''^'^  ^"""'^ 


44 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


M.ould  be  carried  out  in  the  event  of  the  state  of  employ- 
ment for  labor  rendering  it  lesirable  to  do  so,  and  tc.vards  which 
the  board  promised  to  contribute."  '  "  The  works  agreed  upon  " 
.t  was  said,  "are  all  useful  works,  the  need  for  which  has  bten 
stabbshed;  and.  though  the  board  have  not  pledged  themselves 
o  make  grants  m  respect  thereof,  except  on  the  occurrence  of  dis- 
.tress  arising  from  lack  of  employment,  they  will  be  prepared  to 
consider  applications  made  by  highway  authorities  in  respect  of 
such  works  m  the  ordinary  course,  and  upon  the.r  merits.- 

Efforts  to  Furnish  Work  to  Belgian  Refugees 

n;«r"'^'  'h^  Special  Committee  on  the  Prevention  and  Relief  of 
Distress  which  also  undertook  to  care  for  the  Belgian  refugees  to 
provide  for  their  transportation  to  England,  for  their  cTre  on 
arrival  and  to  secure  work  for  those  able  to  work.    With  regarS 

rVoriraTdiLT'"^"""'  "'  '''''  "'"'-'■  '"^  "- 
reported  that  difficulties  soon  appeared.    "  Many  of  the  refugees 

were  ski  led  workmen  and  there  was  a  demand  for  the  r  servl 

in  several  trades,  while  among  the  refugees  themselves  th     Ta 

naturally  a  desire  to  find  some  useful  occupation  during  their  sTav 

rthemTh'  T  '"'""^  '°  ^""^'  "'^' -^  occupjin  found 
for  them  should  not  interfere  with  the  employment  of  British 
labor,  and  it  was  also  ilesired  to  safeguard  the  refuLe  fnth  . 
they  did  not  suffer  from  improper  conlons'of  emp"Cm  "'" 
It  was  deeded  to  appoint  a  special  committee  "  to  investigate 
these  and  other  similar  questions,"  and  to  make  recommendation 
This  committee,  of  which  Sir  Ernest  Hatch,  Barr  wa  the 
chairman,  was  appointed  at  the  end  of  October  and  made  its 
first  report  ,n  December.  The  committee  reported  thaT  out  o 
about  a  million  refugees-nearly  a  sixth  of'the  pojl^on- 

Boaid"',°"  '^"-■""'  ""■  ^'«-     (R"-  "f  5.h  Annua,  Repor,  of  .he  Road 
=  Riport  on  Special  Work,  etc.  (Cd   7763)    p  6 

of' .hrLTi'o.^^ntnfKrLSTr'tVr'"/^''  '■^'■'^  '•-■<'-• 
in  connection  with  the  reception  and  emnl^™!!  7°L'  °J  1u*s'ions  .irising 
this  country.     (Cd.  7?50.)  employment  of  the  Belgian  refugees  in 


INDUSTRIAL   PANIC   AND   READJUSTMENT  45 

Lt^'  made?  "l''  """'  '"  ''"^'='"''  """  ""-cements  were 
being  made  to  brmg  over  more  from  Holland  "to  relieve  the 
exce.s,ve  pressure  there.-    Of  the  refugees  in  England  nfoUa 

wh,ch  showed  that  the  numlx^r  of  men  above  18  years  of  age  1; 
approx,ma.ely  32,000.  of  whom  about  5,000  were  estimatedto  i 
of  m,l,tary  age.    The  number  of  women  above  the  ag^of  16  w^s 

maritTr".V '^  '■  'T'  ='"''  '^^""'''''^  "'  '"«  -»--  who 
marital  condition  was  known  were  married 

The  committee  quite  early  in  its  deliberations  received  an 
n.mation  from  the  Belgian  government  that  it  was  delble 
hat  no  employment  should  be  given  to  unmarried  men  between 

rv^c'e"  Thil'c r'  '"  '''"  '7'  '"  '  «'  ™"'"-'-  ^^  -"'    > 
^2j:Zf^:^;Z:^^^  -^^^^^'^  *-  '^e  scope  o^ 

showe7:ht'?hl'°7n  !''  "r''"  ''""^"■"^  '°  "'^'^  --P«io"» 
Showed  that  they  fell  into  three  main  groups:    "  (l)  Workers 

qualified  to  fill  vacancies  in  industries  in  lich  I  sionage 
Brit  sh  labor  exists,  such  as  armament  workers,  glass  blowers 
woolen  vvorkers  miners  motor  mechanics,  and  agricultural  labor: 
ers.     (2)   Workers  qualified  for  and  in  need  of  employment  for 
whom  no  opportunities  in  British  industries  exist,  such  as  tailors 
ironmongers,  jewelers,  milliners,  dressmakers,  printers    book 
binders,  fancy  goods  makers  and  cabinet  maker's.     (3)  Other 
ernment    r-',"'""'^'  '  P^f"'''--'  character,  such  as  gov- 
I^rCy"'-  '"""''"'■  ^'"''^'  '""^■■^'-^'  '-'='-^.  -'hors 
The  committee  expressed  the  opinion  that  no  great  difficulty 
would  be  found  in  securing  employment  for  those  in  the  fir^ 
group  that  for  those  in  the  second  group  "  special  measures  wi 

L  iTh     ,  ' .''  "°  •'  '^  '°  "^  P™^'''^''''  -'l  *at  for  those 

m  he  third  group     practically  no  chance  of  employment  exists  "  ■ 

In  considering  ..hat  work  could  be  found  for  the  refugees  and 

under  what  conditions  they  should  be  employed  the  committee 

=  w5°"p  "Is'^"™""""  °"  ^''^^"  "''"«•"  'Cd.  7750),  pp.  4-& 
'Ibid.,  pp.  38-39. 


"  BR,T,SH    tAao«  CONm™„S  AND  LEC.SLAT.OK 

consulted  with  employers  of  lalmr  ,•  .    ■ 

a..d  government  offic  al.  ■  The  L.r  " T""  "' '""«-"""» 
unions  raised  no  object  ons  to  ,h  "'''7*'"'="'«'*  °''  'he  trade 
the.  all  made  the  foir;  s^L^.Z l"^™-'  <"  ^^'«--.  ""' 

»«  ivIiU^r  "'""■'"  *-°""'  "'  «-"  ->  wor.  ,„,  „Hich  British  labor 
-^=  w.y  for  Bri,i:h"::it„    """"'"*  °'  '""^  «"«-  -Ployc,  .hould 

Labor  Exchanges'' otfrtZTltoIr:  ^/Tr^^  '"^ 

-rrchX-----""^  '0  cerate  Jir^h-i:; 

h-  already  ^:^ng;rar  [^^'t    S^sTfi^  --^" 

that  in  some  instances  reft  es  ZTZ'"'  /"^""^ation  showed 
were  receiving  wage  aMowe,  ,  ,  t'"'"  """^  '°^  '^•"'^f'  ""ey 
workmen  in  the  same  occupation     "  ""  "■°"  P="''  '°  «"'-^^ 

.ow?d\^itr.:re:i:;riT'""'^"''^''  ^"-'^  '^  ^o-- 

following :  ""Changes  had  as  .ts  two  main  principles  the 

"Changes.  "'""  '^'«"  ""-ough  the  agency  of  the  labor 

(2)  That  no  Belgian  labor  should  he  ,™„i      j 
or  on  conditions  less  favorable  , hi  ,hU«r,,''  T"  °'  '''«"  '<>*". 
oncerned   by  agreement   between  "he   Assail      ''  l^i""  '"  ""  *"ric 

didrt?astra:r;i2or  "^""  '^^  '^""^  -^--^ 
-t  they  were  su«icie„?t::::-rr:i^-s^;:-- 


/fc°o"^"«'''"R=f"«< 


!«s,  p.  17. 


INOUSTKIAL   PANIC   AND   READJUSTMENT  47 

satisfactorj.  Up  to  November  ,TO,  the  exchanges  had  received 
appl.cat,ons  for  Belgian  laborers  from   1,281  employers  Tn^v 

Zte  th!  nt  ^  the  requests  of  239  employers  who  did  not 
s  ate  the  prec.se  number  of  workers  desired,  the  numbers  re- 
quested  were  3.7  5  men  and  1,508  women  or  a  total  of  "  R,  > 
Yet  np  to  December  21  only  607  Belgians,  of  whom  five  were 
women,  had  been  placed  in  employment  by  the  labor  exchange? 
The  reasons  for  so  few  placements  were  said  to  be  tha,  the  local 

auvertised  by  the  labor  exchanges  to  the  notice  of  the  refugees 
and  that  the  conditions  imposed  upon  the  exchanges  by  the  Loci 
Government  Board,  as  just  given,  meant  delay  in  placing  efu^e 
.n  some  cases  and  made  it  impossible  in  others,"  The  commiuee 
went  on  to  ,  ■  that  "  there  are  many  other  agencies  at  w'rk  no 
subject  to  these  conditions,  and  it  is  known  fhat  manyTe fug  e 
have  obtamed  work  mdependen.ly  of  the  exchanges  without  'he 

a  t"  'atte  coTl'l"'™^"'  "'™"^'  '"''^  agency  affords,  Th 
fact  that  the  conditions  recommended  by  the  committee  must 
neessardy  be  satisfied  before  employment  can  be  offered  to 
Belgians  through  the  agency  of  the  exchanges,  tends  to  ,  ivert 

Inder  no^K,  ?  "'  '''^'''"^"  '°  """^  ^S™"-'  -^-h  ar^ 
under  no  obligation  to  see  that  those  conditions  are  satisfied  "' 

emnM  H°'""""'*-^f'  *"  '"  """'  '"^'^""^  ^^f"?"'  have  been 
employed  on  unsatisfactory  terms  and  conditions,  and  it  has  been 
suggested  that,  with  a  view  to  preventing  occurrences  o  ,h" 
kind,  which  are  greatly  to  be  deplored,  measures  should  be  taken 
to  make  the  employment  of  Belgians  through  the  agency  of  the 
labor  exchanges  compulsory  "  •  s    ^-y  oi  tne 

at^he  Z^nf"  "l'  ""'"""^  ""■'  ''  ^  ^°™="  recommendation 
mi  f  ,.  """""^  "'  "P"''  ''"'  announced  that  it  was 
rnaking  further  investigations  with  a  view  to  making  a  definftl 
recommendation.     The  committee   found  it  difficuU  to  make 

If^y  ""Belgian  Refugees,  p.  II, 

'Ibid'.',  p,  39. 


48 


BRITISH    LABOK   CONDITIONS   AND   LEGISLATION 


practicable  suggestions  concerning  employment  for  worke,,  in  its 
secon,  ™ain  group,  those  trained  for  occupations  in  which  here 
was  already  a  surplus  of  Uritish  workers'    These  wer    la  g    ! 

mem.  Ihe  committee  reco-  ,ended  that  the  Belgian  refugees 
m  hese  occupations  he  cmploye.l  in  making  clotL,  furnifu 
and  other  articles  for  household  use  for  the  tenefi,  o  their  ow" 
peop  e  «.hen  they  should  return  to  their  own  country  a,  th  dos^ 
of  the  war.  Several  workshops  had  already  been  established 
having  this  purpose  in  view.'  estaDlished 

wafthf  TT'.^'f  ^  'T"''"'  °"'  ""'  P'''"'  "  -'^^  admitted, 
«as  the  fa  t  that  the  refugees  were  scattered  throughout  the 
country  and  ,t  would  be  difficult  to  find  enough  workers  in  any 
one  place  who  had  sufficient  knowledge  of  anyone  trade  to  con 
duct  a  workshop  for  the  carrying  on  of  that'trade  Th  c  m- 
m,  tee  therefore  recommended  that  the  government  undertake  a 

med  to":,  "■'  r'"^'"  """  "•^'  "  ""•"'  -'"oHy  be 
formed  to  advise  and  assist  local  refugee  committees  in  th! 
organization  of  schemes  for  the  establis'hmen.  of  sZl  Zo^. 

Criticism  of  the  Government's  Plans 

in  Jnnl™?'  ^°™T""  ^"""^'^  P'""^  ='"''  "'"hods  of  prevent- 
"  fhe  Wn  "\'"''"r  ""'  "'"^  considerable  criticism  f.om 
thl)fT.""°"'^  Committee"  formed  on  August  cTy 

it  c^!"'  T        'If'"'  ^'""^'"^y  C°"f"'™e  'o  proti,  work- 
ing class  interests  during  the  war.    The  main  grounds  of  criti 
c.sm  were  (1)  that  "the  problem  of  relieving  dis^essshol 
have  been  a  charge  on  the  nation,  and  should  not  have  bee„ 
handed  over  to  a  voluntary  fund,"  and  (2)  that  "the  Lc^al 
Representatives  Committees  were  practically  delivered  o  er  toTh 
ender  mercies  of  the  'social  worker,'  so  that  an  atmosphere  o 
pauperization  '  resulted  "  '  -"mospnere  ot 

■  Labour  Year  Book,  1916,  p.  32. 


INDUSTRIAL  PANIC  AND  READJUSTMENT  49 

immediate  „a. t  a  1"    ™" "    tT"  ""  '°r'"''"  ">'  "" 

Although  It  is  conceded  by  the  frienri«  of  .hi 
"  hardly  any  of  its  demands  were  ^rmH  and  of  he'':^^""'  "'' 


Emergency  Grants 
In  line  with  the  demands  made  by  the  Worker,'  M„-      , 

section  14  of  the  National  Insu  ance  (Part  uT    ' ."^  '"'  '"^ 
19U  (4  and  5  Geo  5  c  571  ?!,.?;  '  ^™"<'"'^"')  Act, 

applications  from  trade  .nnsd':!^:/^^^^ 
unemployed  benefits  to  their  m^X^s  f^T™ .S 

•iotoiir  Year  Book.  1916,  pp.  33.35. 


»0  ...TISH    W,OR   CONmilON,   AND   LEGISLATION 

ran.,  were  payable  .ubjec.  ..  .he  foUowing  condilU""^'"^ 

(1)  The  union  or  as«>cia.,on  must  1«  one  in  which  .here  was 

an  abnormal  amount  of  unemployn.en.  (a,  leas,    loZ 

"."i^llSflr^-"^^— ^' 
^r  (incluUin,  .he  amoun.'^i;- ^  .r!^.'"  '"'  ■"""■ 

ordmary  contribuf.:.,.s  made  for  .hi.  purpose'. 

as.o.heunempi:::fo;ti;trr''''"''"'-'^' 

the  maximum  be!  'p  J  "u7d  ^^r""  '"'  '""'''"^  '^ 
subsidy  paid    by   the  ZZ',    r     ,  .       '="™"'s.ances  would  the 

obeaina'ble^nder'selllL^rejirro^eMfr""'  r-'"^'^ 
benefits  paid  by  the  associa.ion  Thur  at  '  ""''.^"^'7'"'"' 
to  pay  .he  maximum  Lenefi.  o  17s  a' week  at.""""'?  '"""' 
this  made  a  lew  of  fid  „,,        i  ^"''  '"  o''''""  to  do 

bers.  it  would  7subject.^.s"r„fir  Ih^  '""^  '"'P"'>-'<'  -- 
entitled  to  an  eLrgen™.  of  ol  ^h  !,  ''"  ~"'""°"^)  "'^ 
the  ordinary  gran,  of  one  sil  1  '*"  "P^"''''"^^  plus 

Exchequer  of  one-hafT,  V  '°'^'  ""''^''""  '^o™  the 
fits.  If  the  levy  was  onlv  37:"  *";'°^  ""™P'°^^''  ''™- 
benefit  was  paid  tremereen.  '  "'"'''  ^^"'  ">*  '""'"""" 
the  expenditLe'ccoXd  w4T'  "°""  *"  °"'-^  °"'-'''"' 
lOa).  a  tou.  allelce^rl^htdte  e^x^rtle"""  ''''- 


INDUSTRIAL    PANIC   AND   READJUSTMENT  M 

anowrd.  bu,    Ztc  ruin  ennH- '"''""   '-"L  "  «""'  '^^'^  >««" 

war  was  declared).'  *        '""^ ""  "''"^h 

It  may  be  well  to  follow  here  the  hi«nrv  „f  ,i,„ 
grants,  as  they  throw  considerabi     igh  'o    ,        x     .."f"'"'' 
ployment  durine  the  earli-  ™„„.u     TV  '  "'  ""«""- 

trades  affected  thereby     '  ""  ""  ""''  '"'"""  '"' 

Up  to  the  end  of  December   liiij    r--n  .     . 

cation  for  the  emergence!  l.''' ""'""^  »""l  "--'e  appli- 
meml)ership  of  232  880  and  th?  ""'""'  ''"''  ^  '°"' 

to  that  time    £41  775      Of    h  """  •""''  '"  "'™  »'«•  "P 

unions  in  ,he  cot!;"  ndu"  /tv^L  "'"h-  "'?'  "  '" 
Other  textile  workers  received  f,T«0  "7'"'' "^  "'•''™- 
printing  trades  received  £1560  Small  ,  "  ""'""'  '"  "" 
unions   in   the  metal  \V»  ,      *'"''""'»  ""e  paid  to 

Emergency  trttil;  7:;  Tm^r  in t /I'l"":  '"''"' 
amounts  during  the  succeeding  montC'ut  in  Ma  tl tar':.''"? 
Trade  announced  that  "  in  view  n(  .h.  ,        .  "''  "' 

tions  ••  it  would  Dav  nn  J"  '"'''"''  '""''''"K^  "'  ^ondi- 

end  of  MaT'  As  a  "°r  ;r  "P'"'"''"«»  incurred  after  the 
ditures  incurred  a  teTtir  3  "I'^r^  T  ""  ■"""  °"  """" 

policy  up  to  August  1  19  ,  nr'  I  ?^  .'"'■■"  '"""'  "f  '^'" 
^    ,    V  o  rtugust  1,  1915,  are  shown  in  the  following  table:  < 

TndeGroup  „„      Apfucatoks  Granted         Amoun., 

Building    No-ofAsiocutioni    Membership        Piij 

Meul  ....  '  61  {       4 

Cotton   '.'.[[[['.'.'.', '?  WW  1.297 

Other  textiles  ...  "'  ^21.413  70.S(i6 

Priming '  5.402  2.285 

Woodwork  ....  o  23.2(r0  stn 

Other  trades  .....'.' ,?  17..102  2.148 

'"  W87  2,.18S 

Total    ..  . 

'^  »».»7  <84.176 

19I4nr'4l1..^'""-''»'»   ^'"'-'■•o".   Suppl„„e,„    No.    ,.     (To   Nov    3 

■ /iiu.^'^r"' ""■"■«• 

'  '*'■<'..  p.  307. 


^2  BRITISH    LABOR    CONDITIONS    /.ND    LEGISLATION 

Any  need  for  unusual  measures  to  relieve  distress  nr  . 

trades,  were  s^lTduH  bm  then  d  """"^  ''""""'■  ''=''  ='"''  >>"* 
unemployment  ^^^^^t'^';:ZZ'T  ^  ''''"'  "''" 
-"ation  so  far  as   men  worke:!  rretn^'^^ed"  ""^  """  '"^ 

IMPROVED  Conditions  amono  Women  :  Industrial  Transeers 

'a^:^  reS:^err::or'^  ^'^\--  -^'■'  - 

among  dressmakers  ■  "''""  '"  ^°''^°"'  «I«c.ally 

<-oe?::ttr:;;e"r  irntzr:  /r  t  ■?-^  -  "r 

instances  of  such  transfers  havn^l    ^""f     '^"''^^  "'"^  ^"^ 
*'  i^  -d  that  amon,  .He^.'irH^rcr  ^eS!"-    '^'""^ 

portion  of  these  workers  have  reLTn  "d   »n^  •,  "  '""""'''  '  '"«  P^o- 

rLTtoX-ie^.  ^°-  ■■"  -  >^"rt:-rc:r:: ;- x- 

-~t!:^-:r:— -t:'^«;or.rs.BatHa„d 
*™y;'  gtrls  in  Redditok       Z.%  I  ^'"'^'^'^'  ^°'  ** 


INDUSTRIAL    PANIC    A.VD    READJUSTMENT  53 

Further  mstances  of  these  industrial  transfers  are  noteH  in 


-Ml 

'  ^1 


I»r.t,vcly  indifferent  whether  they  ob,,^  fre  h  eL  """"'■  "'  """ 
men's  contribution  to  the  family  iZZ  I  employment  or  not,  a,  the 
lack  of  wages     Under  ..,,1,  ™  '  ''"  "mpensated   for  their  own 

.he  -n,enT-,ealty"  w  'rad".T:o":''  ".""r""'  ''"''"  '°  '""« 
would  be  really  needed!^.  """"  '°  '"'"""'  «"■"«  ""ir  I»bor 


Jh-/-*"  ''"'""'*'  '"'"'"  '°'"^''"  «'"«  billeted,  the  effect  of  war 

I  kb'*"'  ^'"'-  I9I5.  p.  39. 
^  Ibid.,  p.  79. 


if'Ni 


S4  BWnsH   ^BOR   CONDITIONS  AND  LEGISLATION 

ocrs:.'';„r* -™t"a,^;r"^''"'  - '"-'"-  -'"'  --  «nd 

fluences  combined  have  TsL.    v  .      '  "'"  ""''  ""'P'  »"<<  'he  •»»  in- 

-"  -  .e ..,  :;r  ™r  :rL^e;:^ :  z-^z::^  - 

Disappearance  of  Unemployment 

.i  p"e"  ::i^;i  tsXTr '-  '^"-^  --""-^  -^^^^ 

nature  of  repe.idon      A^   '  ,   T'  ""^^'^  ""'^  ^e  in  the 

way  to  a'labor  o^e'^'  ^,^"!"^'  -'^  September  had  given 
-ent  an,ong  women'wo'k  '^  d!lT,  '"'"•  ^"'"-P'^^- 
'uxury  trades  continued  dep/eLedut, he  t""'.  ''"Z'''  ^"^ 
from  one  industry  tr   another        t  ""''"  °'  «""•''«« 

another  relieved  the     tuatronf  u'™"    '"'"  °"^  '"^'ri«  'o 

such  trades  as  the  t  ^tHor  '  T'"^' ^'^"'P"'"'''  '" 
female  labor  was  teing'„Wdf         T  '""  '"  ^^"^"""^^ 

Unemployment  amon^  t^   "etL  i^  a^^'h  ""'t"''' 
made  to  the  Board  of  Tr^JLT,!',       '^°'""  ^^  '^^"'"^ 
"Wer  than  in  anylLrduX^fh"!::  Z^  ^  '"-"'T, 

^--  Siz"Lr:i  rr  ^^^^'^^^ 

les.  than  one  per  "en.  f  '"°''''  '"  "^^  '"^""O  '-^es  was 

sinle'^httb^e^roTtl:  t^r  "'  '"^  ^"""°^'"'"'  ^■•'-«- 
the  close  of  the  first  U'r^  oT.^f  rar^^r  '"^  ---  - 

»^ti:  ztz-^r^-:::,  trr "-  -'""-'  "<  -« ^^»^^ 

consideraWe  transference  fror,rade  atrT  ff  "'."^  "■"'  "^  "«"  • 
■ndustnes  which  were  rendered  abnormaUv  ™  "'l"*  '"  ""=  ""'  '°  <"•>" 
wherever  possible,  a  growing  movlZllT'^'"  '^''"'"■"  "««  >■«  >«". 
-ale  for  male  labor.  The  „f,  re"  .7s  h  ^h"""""  ""  ^"""""'■"^  '- 
■■'.'=  "n™P.o™en,,  e.cep.  in  a  few  .X^'raderXe'Ta^ri^oJ 

■«"..  p.  ISS. 

'""i..  p.  1 

'/bid.,  p.  265. 
•rt«.,  p.  273. 


INDUSTRIAL    PANIC    AND    READJUSTMENT  55 

industries,  notably  coal   mining,  engineering,   shipbuilding,  agriculture  and 
transport,  the  demand  for  labor  greatly  exceeds  the  supply.  "^'""""  '"* 

Governmetit  efforts  of  an  unusual  sort  to  relieve  distress  due  to 
unemployment  seem  practically  to  have  ceased  bv  the  end  of 
1014.  This  does  not  mean  that  such  distress  no  longer  existed 
but  that  such  agencies  as  existed  at  the  outbreak  of  the  war  or 
had  been  created  to  meet  the  emergency  were  found  to  be  able 
to  cope  with  the  situation. 

The  number  of  paupers,  which  had  suddenly  increased  in 
August  and  September.  10  ■  ..  showed  a  steady  decline  month  by 
moiith  thereafter.  In  June,  1015,  the  number  in  England  and 
Wales  was  584,580, 

'•"""lo,"'/,"!"'"/  """  ''^'  ■•""  ""'■'«'  '"'  '>"  '"i  of  June  in  any  year 
smce  1875  (the  first  year  to  which  the  return  relates)  in  sp  te  of  "he  rise" 

whh  1  Tand  168"'%""  '"fT"'  "'  *'  ^'"'"'"■'^  "-'=«•  "  --P'-^ 
with  16.7  and  16.8  m  June  of  the  two  previous  years,  and  rates  exceeding  20 

.'o'^ITric,  "a'd"  '"" r"  'T'-'  ^'"-    ^^=  "-'■-  --« 
to  all  dtstrtcts,  and  was  shown  ,n  both  indoor  and  outdoor  pauperism.! 

We  have  already  -oled  the  cessation  of  emergency  grants  to 
the  trade  unions  in  May,  1015.  The  number  of  persons  who 
received  employment  relief  through  distress  committees  was  115 
m  August,  1915,  as  compared  with  580  in  July,  1914,  and  2  843 
in  August  of  that  year." 

Relief  of  Disabled  Soldiers  and  Sailors 

One  form  of  government  assistance  in  finding  employment 
became  mcreasingly  necessary  as  the  war  continued.  This  had 
to  do  with  disabled  soldiers  and  sailors  and  presented  in  some 
respects  a  new  problem.  No  systematic  method  of  dealing  with 
the  situation  was  made  until  February,  1915.  when  the  President 
of  the  Local  Government  Board  appointed  a  "committee  to  con- 
sider and  report  upon  the  methods  to  be  adopted  for  providing 
employment  for  soltliers  and  sailors  disabled  in  the  war."    Sir 

>  Ijibour  Carrtti',  1915.  p.  301 

•rtii/.,  pp.  307,  346. 


;  "r 


86  BRITISH   LABOR   CONDITIONS   AND   LEGISLATION 

George  Murray  was  macit  chairman.     The  committer  n,=^    • 
report  in  May,  Iftir..  '"=  ™nimittee  made  its 

The  committee,  after  declaring  it  to  be  the  dntv  of  .1, 
.  a^sume  the  care  of  the  ..i,or.  fnd  so^^^l^^^  '^l 

co^rr^:-tt;:rhL::L-— ::;--- 

mittees  wherever  nef.,1^,1   ,n  1  "^s  stance  of  local  subcom- 

agencies  wher:;^^  i;^::::,^  ^^^^  ^^'"- 

The   functions    of   the   committee    would    be-    fa)    , 
care  and   treatment  o(   all   disabled   .=?i  ..  '  '    '"   """«'    '<"    'he 

their  discharge,  „i,h  the  view  of  resto  ^.r"*  ""f"'  ■""""iiately  on 
and  enabling  then,  to  earn  the"  own  itg"  btl'^?"""'  r"™  ^"'"''^ 
o  approaching  discharges  from  hospiu  a„d  to  arr,  '?  '"l"  '"'o™"'"" 
of  every  disabled  man,  who  was  caolbl,  „t  l  •*'  '"'  *'  "Kisfation 
of  the  district  to  Which  be  was  gofng  (O  toTo."""  '"=  '"""^  '«"""«= 
partments  with  the  view  of  obtaining ej„  "mraun.cate  with  public  de- 
-en  as  could  properly  be  appotateTfo  vTc  TcTs  '  ''.  '"  "*  "'"""' 
pnvate  appeals  •.  employers  in  order  to!.!,:  *  '°  °'»""'"'  '■"*''"'  "' 
vacancies  which  were  suitablf'd,  bled  ml  ,' \r'  "'"  '"  "'""^  "">' 
m,ltees  (where  necessary).  „r  local  "  „., 7," '  <=>  '"  'PP™'  '""l  eom- 
generally  in  the  Performance  o,"  jX","'  '°n""'"  ""  "■""""" 
ment  and  negotiating  with  emJov  r,    7     ,„  "'""''  '"  ""■""«  '■"P'-'y 

training  men  who  were  deTirous  of  ohJ^  T'u  ""'' '™' ^''■™« '»% 
•hem  for  skilled  occupationt  and  to  arrlnri  ^^K  '"'  '"''"^'"^  '"  «' 
the  period  of  ,r,i„ing;  (g)  o  consider  ?„T/?  l"  "■"'"'="""«  during 
ing  disabled  men  in  agri  *l,ure  and  th.  i  "d  "i      "''"""  '"'  ="'P'°^ 

range  for  ,he  emigration  o?  men  wh^  ^re  d"'""'  7'*  ''^  ^"^  ">  "" 
parts  of  the  Empire.^  *"'  ''"'™'»  of  settling  in  other 

ernSf 'f,„°/rd"^rtf '^ro^Kn-'ol  empt  '"'"t"'  "'  "■'  !-='  Gov- 
>«!«   '"  6'"  ™  "^''-  ''")    P  8     ™P'°™'"'  'or  sailors  and  soldier. 


INDUSTRIAL   PANIC  AND   READJUSTMENT  57 

their  report  (May  4,  1915).  a  period  of  nearly  eight  months, 
2,874  persons  had  been  discharged  on  account  of  incapacity  This 
was  at  the  rate  of  360  a  month.  The  rate  of  discharge  at  the 
time  of  making  the  report  was  about  l.OUO  per  month  The 
committee  admitted  that  there  might  be  some  increase  in  the 
number  of  incapacitated  as  the  numljer  of  men  en-aged  in  hos- 
tihties  increased.' 

One  important  point  covered  by  the  committee's  report  related 
to  the  effect  of  the  Workmen's  Compensation  Act  in  causing 
reluctance  on  the  part  of  employers  to  accept  the  services  of 
partially  disabled  men,  because  of  the  liability  imposed  upon 
employers  by  the  act.  The  committee  discovered  that  insurance 
companies  did  not,  save  in  very  exceptional  cases,  char^-e  an 
additional  premium  on  account  of  physical  disability.  The  com- 
mittee said : 


We  think  thertfort  that  no  objection  is  likely  to  be  taken  on  this  ground 
framed  from  covering  his  liability  by  insurance,' 

Emigration  and  lM.MrGRATioN 

Ordinarily  the  movemems  of  emigration  and  immigration  are 

closely  related  to  employment  conditions  within  a  country      In 

normal  years  Great  Britain  loses  a  considerable  number  of  her 

citizens  to  Canada,  Australia,  New  Zealand  and  other  of  her 

colonies  as  well  as  to  the  United  States  and  other  countries     The 

number  of  persons  of  British  nationality  who  leave  Great  Britain 

to  take  up  their  per.nanent  residence  in  these  countries  is  larger 

than  the  considerable  number  who  return  to  Great  Britain  from 

the  colonies  and  elsewhere  to  reside  permanently  in  the  mother 

country.     In  1913  the  excess  of  emigrants  of  this  sort  was 

■W3,fi«.T  and  low.  it  must  be  remembered.  ;vas  a  vear  of  unuwal 

prosperity  in  Great  Britain,  when  the  motive  to  migrate  in  order 

to  better  economic  conditions  would  naturally  be  w  iak. 

During  the  first  seven  months  of  1014  industrial 'conditions  in 

'  Report  on  Disabled  Soldiers,  pp.  2-3. 
/Old.,  pp.  7-8, 


58  KHifM,    L,VBOH    CONmT.ONS    AND    LECSLATION 

mf  ^t*1l"JfV'""''"'-  ••«'  *'«  not  so  good  as  in 

isHiiipi 

Changes  in  Rate  of  Wages 

more  steady  employment  but  in  hil^ZL  ™^  '" 

marked  change  of  .L  sort  tooLpS'how      rlnTo'lT  if  '"' 
consider  the  industries  collectively  '  '*  "" 

During  the  first  seven  months  of  1014.  Ctt,<.       •  j  i  , 


INDUSTRIAL   PANIC  AND   READJUSTMENT  89 

with  a  decline  in  the  selling  prices  of  coal  and  iron.'    In  other 
industries  wages  showed  an  increase. 

After  the  outbreak  of  the  war  an  exact  reversal  of  conditions 
took  place.  Prices  of  coal  and  iron  began  to  rise  and  wages  in 
these  industries  automatically  advanced.  Other  industries,  how- 
ever, like  the  textile,  clothing,  printing,  etc.,  suffered  a  more  or 
less  temporary  decline  in  their  prosperity  and  here  rates  of  wages 
did  not  advance,  but  in  some  cases  fell. 

In  consequence  of  these  diverse  movements,  the  net  amount  of  the  changes 

IL  il^,  ""''"     J,""  "''°''  "'"  ""  ""'  '"""•  """«  »■>  increase  of 
only  tofloZ  per   wcek.2 

Changes  in  hours  of  labor  in  1!)14  affected  7«,ia5  of  whom 
78,689  had  their  hours  reduced.'  For  the  first  six  months  of  the 
war  changes  in  rates  of  wages  were  few,'  but  by  February,  1915, 
a  sharp  upward  tendency  was  noticeable.  The  increases  generally 
took  the  form  of  bonuses  granted  for  the  duration  of  the  war 
and  were  allowed  on  the  ground  that  they  were  necessary  to  meet 
the  rise  m  the  cost  of  living.'  Aside  from  increases  made  under 
the  sliding  scale  m  the  iron  and  steel  industries,  the  increases  in 
January  and  February  were  most  notable  for  the  engineering 
building,  textile  and  transport  workers.' 

The  increases  which  took  place  in  March,  1915,  were  much 
more  numerous  and  affected  a  much  wider  range  of  trades. 

Not  only  was  the  number  of  increases  or  bonuses  much  above  the  average, 
but  also  the  amounts  were  in  most  cases  greater  than  those  granted  in 
previous  periods  of  rising  wages.'  graniea  in 

No  decreases  were  reported  for  this  month  and  446,267  persons 
shared  in  the  increases,  which  were  especially  numerous  in  the 
engineering,  shipbuilding,  transport  and  textile  trades  The 
increases  frequently  took  the  form  of  a  10  per  cent  increase  in 

1  Ubour  Gazette.  1914,  p.  309. 

'  Ihid.,  p.  4. 

»  "  During  the  last  five  months  of  1914  there  were  nrarticallv  nn  i™~,-.,.. 
advances  ,n  wages."    Cole:  Uhour  m  WcrTiZl  Y^f' ""''  ™  '■"!»"=« 

!  'f.6o"r  Gaielle.  1915,  p.  lOS.  '  '' 

'rbtd..  pp.  67,  105. 


'  Ibid.. 


p.  142. 


«0  .  BRITISH    LABOR    CO.VD.X.OKS   AND   LHC.SLAT.ON 

-Pioyes,  .0  Xayser  ants'?  '"■"'"  '"  «"^""'""' 

laborers.'    In  ApHMl  e"  I  „  7  T*"!"  """  '°  "S"™"""! 
of  wages,  but  the  up  „r7.  n  "  '"^'  '""^""^  '"  ^a'" 

ment.    "  The  aL'™.  on'h"-"'"'  '""""'^  «^^'"  "P"''^''  "ove- 

tH.  West  evrrrL'~,;:r^r?L^"'  ^^'^^ 

month.     The  ZtZstin^:-  "",'"'  '"""^«  '"'^-S  .his 

much  as  15'^  per  cent  on'he"  "       '"'  ""'  '"""'""y  "s 

places  65  per  cent  hTghertha„rht^"''^"-  *'"''  ""*  '"  ^°'"« 

Further  increases  in  wa.r  ,"""  °^  "^«  "^  ^S^D.* 

year  of  the  war  said  tha.Xtl.nT  ™''  """"«  '"^  «"' 
rates  of  wages  were  aff« tej  bv   L  °'  *"''  P'°l"^  ""ose 

the  nee  increases  an,oumro  f^Sa^^^Zk'^^r  ^^^  "■^• 
are  much  in  excess  of  those  recorded  f™r  J  •  "'  "^'■^ 
first  the  increases,  taking  the  form  nf  ^  """""^  ^'"•"  ^^ 
industries  concerned  Syi^;"',"/:"  T''  ""'  '"  *'■« 
'hey  were  extended  to  mos  oHle  ^Z?"'  "l ""'"'"'°'"-  ^'" 
principal  exceptions  beTng  , hi  buid.nt""  °'  "^  ~""'^^-  "  "■« 
trades."'     The  increa  e  of  th  ?'  P""""^  and  furnishing 

much  greater  thanTetcrltS::/  '"^  ""''^"  ^^^ 
overtime  was  worked  in  ,0™.    f  i        i         *™«^"'  "'"<=«  much 

at  higher  rates  th^foToX^r;  dlVwork.'  '^'  "^"^'^  '«'''  ^^ 

Changes  in  Prices 
Having  observed  the  efferf  nf  fi,.  £    • 


•/»'<(.,  p.  223.' 


*'*«.,  pp.  223-224. 
•  ""rf.,  p.  300. 


■ii'i' 


:ndust«mi.  panic  and  HEADJUSTMENT  61 

and  which  were  said  to  have  been  the  cause  nf  .t,.  »„, 
voluntary  increase  in  the  rates  of  wlges  ""''  °'  "" 

The  Board  of  Trade  Labour  Gaiettc.  calculating  its  index  n,,m 
bers  for  forty-seven  separate  articles  weighted  afco  d  ng"o  esTi'- 
mated  consun,pfon,  discovered  that,  compared  with  prces    n 

^:;fc^ir^e^r=:^,--^w..^ 
Sv^^t— -~^--^^^^ 

We  have  already  observed  the  eflfect  of  the  August  (1014) 

oTthe-atro trs  itT«?rtrpr  '-h-^^-'"^^ 
^:^^^'  '^^'  ^^  - -T/tKnrh;; 

were  about  10  per  cent  above  the  August  level.    From  then  on 

yt^  :  XtaT'  Th  '''^'""  ^°""""'''  •"roughouT  the  firs 
year  ot  the  war.     The  percentages  above  so-call«l   "n^™,.i 


September.  1914  ^"'  JJ"'  j,,„^    ...j  Per  «nt 


November,  1914  ]  13 

December,  1914  ......'  ig 

January,   1915 ]8 

February,   1915    22 


May,  1915 
June,  1915 
July,  1915 
August,   I9IS   (July  311    .....     34 


24 
24 
26 
32 
«■/, 


Ithough  the  Board  of  Trade  has  worked  out  no  in.lex  numl«r 

.wages  durng  this  period  and  a  direct  con^^rison  C  .T  :„ 

"  .g^s  and  food  pr,ces  is  therefot,  impossiW,.  it  is  p^*able  tha" 

'W^p'^°5f"' ""■■'•"* 
'  Ibid.,  p.  275. 


I M 


«2  .«.ns..    :^B0«   COND,nON.    AND   LEC.SLAT.ON 

The  Labour  ycarB„oimT\  ^       u"  ""  '''""  P""'  "'  f°<^- 

1W4,  and  2:,s.>«|    in  ,.,,4    „■     '    ,     7' ™- '"  »"  summer  of 
"«>n,«hi„g  more  than  'm;"."-"'  '''  ■'"'^  ''  "'''■  *■«-•  "« 


Recrudescence  of  Strikes 


perhap!„„,sutr    "   .h^'^^^^^^^^^^^  °f  'he  war,  i,  is 

the  implied  promi  m  de  '„  t^'""'!^,^,  f  °"'''  ^^'"  '»  regre. 
later  leaders  on  August  2I  wh  n  ,  !f  ^  '  '""^"'""  °' 
to  terminate  existing  trln     1  ^^'■"'' '"  ""^''^  ""  '"fo" 

culties  arisln/'rC  e  r"  iT'dI"  ^M '"  .'""""  '"^- 
means.'  "'    ''    P°ss'ble,    by    amicable 

wefelL'llnhfllblr"?"-'^'  TV  "^^  "--"•  '- 
been  n.ade  in  Sng  the  tTu t"  "".'"'  """  ="  ""''»•<'  •'^<' 

.rewaspricescont^reVtoarceXl^r?-  ^''"  ^"""« 
1914,  and  industry  after  induslrv tl„  ?^  ""'^  "'"""'^  "^ 

ernment  orders  without  anveffln  t-  ^/°'^'  "■^"^11  gov- 

.0  induce  employerst IdtnXt"'  Sul'  1'"^  ^°™™™"' 
by  the  Chief  Industrial  Commission  r  on  beha  f  L'th""'  '"™ 
ment  during  these  months  were  in  the  dLcdon  ,,  ^°'""- 
disputes,  in  order  that  production  nH^h,  nn,.  '''/""^^'"E 

and  temporary  settlements  wlr-T  ""«'", "°'  ^  '"terfered  with, 
form  of  main;i„ing";hr:X  .r"'^"  ^"'^^  "^"'"^  '^^  '"e 

falln\rst;Vt:^a: Sn"  ^T'  ^^  ^^  ^"'  -"  '^<^ 
after  that  month,  bdng  twent  thr'e".  t'":''  ^'""'^  ■""'^«'' 
seven  for  October  twenl-five  for  N  '"'J'^'""^''  twenty- 
December.     The  increase  i..^        '^""""'^^  *"d  «venteen  for 


I 


INDl'STRIAI.    PANIC   AND   READJtSTMENT  03 

for  practically  all  of  these  disputes  wtre  of  an  Insignificant 
character,  mvolvng  directly  or  indirectly  verv  few  workers 
Industrial  peace  was  most  nearly  realized  in  December  when  the 
seventeen  new  disputes  involved  .lirectly  and  indirectly  only 
1.192  workers  and  all  disputes  (old  and  new)  in  progre  s  that 
month  involved  only  .l.oes  workers. 


Although  the  month  of  January,  1(115.  showed  some  increase 
m  the  number  and  importance  of  industrial  disputes  the  first 
realy-^important  hreach  in  the  "industrial  truce"  was  noi  made 
until  February.  During  that  month  the  number  of  disputes  beeun 
during  the  month  rose  to  forty-seven.  involving  directly  and  indi- 
rectly  2«^000  workers.  In  February  the  railwfv  servants  who  in 
November  had  agreed  to  suspend  their  demand  for  changed  con- 
ditions made  a  demand  upon  the  companies  for  increased  wages 
A  settlement  was  made  by  which  the  companies  agreed  to  pay  a 
war  linnus  of  .'is.  a  week  to  all  men  earning  less  than  .30s.,  r  ,id  of 
-s.  a  week  to  all  who  were  earning  more  than  30s. 

This  agreement  was  subject  to  considerable  criticism  by  labor- 
ers in  other  industries  and  occupations.  It  served  as  a  precedent 
among  employers  whenever  demands  were  made  for  advances  in 
wages  due  to  war  conditions.  The  amount  of  the  advance  was 
insuflRcient.  it  was  claimed,  to  bring  real  wages  to  prewar  condi- 
tions ,n  view  of  the  very  considerable  advance  in  the  cost  of  living 
The  three  shilling  bonus  allowed  to  workers  receiving  less 
than  30s.  a  week  meant  an  advance  in  money  wages  of  10-)-  per 
cent.  By  February  the  percentage  increase  of  retail  food  prices 
over  prices  for  July.  1914,  was  fron!  twenty  to  twenty-three  and 
according  to  "the  standard  working  class  budget"  worked  out 
^Labour  Gaiclle.  19IS.  pp.  4.  25.    Cole,  op.  cil.,  p.  140, 


:vm 


««  BR,T,SH   LABOR  CONDITIONS  AKD  LEGISLATION 

^.^.^^  took  even  le.s  account  of  the  advance  in  the  cost  of 

The  chief  criticism  of  the  railwav  amrm.n,    k 
tamed  not  to  the  amount  but  to  the  form^T      '       ''"■"•  P*'" 
The  2S..3S.  increase  was  a  "  war  L„T^  n  ,      '""""  "'  *"«"• 
of  wages.  war  bonus,    not  a  permanent  increase 

"Mnent  tdv,nc«."  "  '"  ""'"  '""iMIrie.  to  itcure  per- 

J'^~ ';!f':;:eta'T'  "^  ^^  •""-^•^  -  "-«>■  -h- 

.  .n.  Place  andtl'l'  :eXt  Sll^trr  J  '^^■ 
rcS^irr^- -'-7  'oLer"!„rnrw  Z^Z 
ers  he  a.f  „r  an;:f  th^t  t^Lr'^"-  «"'  ^'^- 
couVdtavV  ie'rsuatd"™:,^'"  •""  ""^  "^"^'^  "«  ^^  '»'"'-». 

the  first  year  of  the  Jar  In  '•■'  """"^'nty  prevailing  in 
that,  in  vU  ofVh/  ^  7"  •*  ''°"'^'"'''  >"«  i' ''  Probable 

but  withi  '  "c^XToi'r "'« ;■ "'"  '"■•«'''  "-"=  ^™•" 

bound  by  the  terms  of   h'  ■■'^-  f         '"'"^  •''^'  ""^  ^"^  ""t 

.«ders  andlSVa   t.e  tr  nir-'''  "^  •"'■'^ 

un.onis.s  resumed  their  stoppage  of ll^tlyi^^Jr''  ** 

."A"?""''  y'r  Book.  1916,  p.  211 
'Cole,  „p.  „,.,  pp,  ,44.,45;  P-  ■"•• 


INDUST.ML  PAN.c  AND  HEADJUSTMENT 

The  Clyde  Strike 


6S 


shipyards.     I,  began  on  Feb  uary  ,T,  ,r  "^T    '"  ""  ">'" 

come  .0  an  ^:^\n]:Z^.1^rVZf  '""""■  ""^'  '"" 
renewal,  .he  „,en  we're  de,nan.  i  .^  an  ^c^ZH^T'T  '"'   " 

r  mr  'T ""'"'"  "^"  --^"^  -  ^ '-^'" 

dr:.;:;on?:HrpX':tnTHrir'™^'%" '-'- 

"ea«  of  %d.  an  hour,  bm  offered  ii'  Zl"'"'  .^"""^  •'"  ^■^■ 
I.S  acceptance  was  r.co.'.td  '  ;^  e  „tra U.:";'""''; 
the  Amalgamated  Society  of  Engin^rs   bur  h  "' 

The  government  now  decided  to  intervene     On  p  > 

productive  power  of  the  employe,  t  e„!,n'  V"""  '°  '"'"■•'  "■>'  "■' 

men.,  working  ,„  ,o,.Z.:Z"^Z'7r^  Z'lT''"'  """■'"■ 

The  chairman  of  this  committee  was  Sir  George  Askwith 
Chief  Industrial  Commissioner.    He  sent  a  l.tiTnn  pi' 


•Cole.  op.ril.,p.  147. 

,  "!i-  P-  '••S- 
■/Wrf.,  p.  151. 
'Labour  year  Book,  I9I6,  p. 


53. 


cessation  of  wcirk  and  that  .1 

Monday  n,or„n,„,  March  ,  '  "■-"  ""  '-'  "  '■"■'"■'«'''"  °'  work  on 

'or  .he  rcprcL,a.°r  /,;:"r°"  ,:'  *°*,"™«™-ts  „„,  he  „ad. 
.n  en,i„een„g  and  ^U,,l.,,,t/  ZXr^Tnll  ,":'-""■"""«  -  ''"ducon 
'"  *''"'"  *"'"«  "'"''«  for  sett  ement  ""-•  l"'n.o»e  of  ,he  rasters 

-    -.    .wer    ,0    „,    „.    .^"Tnl-^h^hr:^--'-:- 

There  is  some  doub,  a   to  II     T      '  ^'«"">Ption  of  work. 

-"itlee,  on  the  other  hand    .Xl!  ^^'''''  "'  L^"'"^  Corn- 

March  4.  three  days  aft  rledal^rr"  '°  ""™^  ^™'^  °" 
VVWk  was  actttally  resun^  d  o  M  .' h  /  T^?™'"  """"'• 
Ployes  heing  unable  to  agree  o^tthe  .e^  ,  ^'"f' "^'^'^  and  em- 
ter  was  referre<l  by  request  o,h  settlement,  the  mat- 

theCommit.eeonlLuctTo„  Th^""?T'  *°  '^''"^="*°"  "^ 
'he  e„„„eers  an  adv  nee  ^^  id   anrn":        ''''•""'"''""  «"^ 

.ave.h.  advance  not  asapeJa„:;rereo7r:rSj; 
take  the  form  ofwarbonuTe^  "'  °'  "'^""^  ""^^  '"-"ses 

^o^'::tt:r^^l:::r"T''«''^' '''■•'-■'- 

that  the  advance  wt,  n,  I     Z       ""^'"■^^'^^  complained  bitteri- 
pp.  i^■53.    Cole,  o^  „>.,  p_.,  ,S3.,5^ 


INDUSTRIAL   PANIC   AND  READJUSTMENT  67 

Munitions  of  War  Ac.  „  „  "'"°"  '"  ">'  enactment  of  "  The 
developments,  ZZ.tT^.  t '  rnolLT  t^  ";"""'  "^  *"' 
employers  and  trade  unions  n  ^h  entrerl  tlT'  """"'  "^ 
a  program  of  production  during  warCe^  '"'"  "  "^^'^  °" 


I  i 


CHAPTER  IV 
The  Government  and  the  Trade  Unions 

D.SAG«EEME«r   .»   XHE    ENGmEHRXXO   TRADES 

unusual  demands  mad    upon  ,h'     ,      ^  '"'  """'""y  '°  '"«= 
munition,  of  war      I,  Tm.     ™   '^,,*^  government  to  supply 

f-n,  thi.  industry  en  sd:,hr       1  '™  "'°"^^"^  »-'"' 
From  wl,atever  cause     he  sLor.  I    7  """"'^  "'  '"'^  «-• 

'h.s  industry  very  s„o„  andt  'if:,:  ,^^'^  "'^^  "-"  «t  . 

InDecemi^^rtheEnsineerintrl,  ^  Noveml«.r,  uu. 
fo  the  union,  that  tiJZZ7,l^I°T  ^'■*™"'''  '-'P°«« 
'«ions  as  to  .killed  anrulkileTn'"  '■■■''""''"" '  ""'^  ^^B"" 
the  -'emarcat,,^  .,f  workTet'l,  ?""'""  """  f'"'*  1^^. 
..vertime.  Th.v  offe  ed  J^rlm'  M  l"""  '"^  ""'"«■""  " 
would  resume  ti.  ol  1  1*^,"  ^  ^a"  ''='7''^  f«'"^'-l  employers 
payment  of  the  standard    1:   ^ouib"  °'  "^  ''''  ^"^  '^« 

The  unions  would  not  atrree  t,Tth  "=""'='■"'=1.'  • 

•^f-al  on  the  follow.ng  gro„„ds      " ''"''""''"''^'  '«^'"»f '"- 

" -*c:SZ;:l:r  .f /---n,p,oyers 

=rd!isr-°--«-~^^^ 

-;-.Hee.eetof,:^:-:-»-- 

The  unions  tin  their  mrt .«,  i 

tneir  part  made  counter  proposals  : 


(2) 


' Labou} 
•'Hd..i 


W  a^o*,  I9I6  p  sj 


.filEf!^'!:'! 


THE  GOVERNMENT  AND  THE   TRADE    UNIONS  69 

S)  fI™!  "°'  T'^^'t  °"  ^"  "°^''  '"  "^  ^■-"  ™*  work 

(2)  F,rms  working  short  time  to  transfer  their  workers  to 
firms  engaged  on  government  w„rk 

(3)  Employers  and  unionists  jointly  to  request  the  govern 

^i>  '"  P'^"'  *'  '^  'I'stance  from  their  homes. 

coloL's      ^°^""'"^"'  ^-f'  ^'^'"^1  -Sineors   from  the 

(5)  That  skilled  engineers  who  had  enlisted   l,e  withdrawn 

from  mduary  service  and  be  restored  tu  industry 

Jhe  employers  held  that  the  proposals  of  the  un.on    did  no, 

provide  any  adequate   remedy   for  the   present    i.ffi.,  f 

ob.a,nmg  the  necessary  supply'of   work         p     ••  't      ';,;^ 

expressed  the.r  "disappointment  that  their  p„p„sals  to  a^s" 

the  country  should  have  met  with  no  response  •'  ■ 

The  men  naturally  resented  the  implication  that  fh. 
UJ^.rio.c|«.t  further  conferences  faLit  i:!:'L'^^ 

Xs^t;^i^rr^^;i;^=  — • ----- 

It  is  an  interesting  commentary  on  the  bluff  (sairacitv)  „f  .h- 

ferm^r"" "'  "■'  ^■-""'  --"-''  Have'sr'iira^trc^: 

wor?and''Lf ''™T"!  ■^'^°"""'""  ""  P™"""'-  --  ^^U  at 
work  and  before  it  had  issued  its  report,  Mr.  H.  J  Tennant 
Under  Secretary  of  War,  made  a  speech  in  th,-  Houte  o    O  m' 

meinbers  of  the  Labor  pany.     He  asked  the  Labor  members  of 

-.  T::d!d  "noV^H-  '"""i"" " '-' ''' """-  -  -'- -he 

nmtect  the        T    '      "''  "'"  '^'  government  was  willing  to 

Zl  fvernment  would  also  ask  emplovers  to  limit  their 

profits  in  order  that  both  sides  might  make  sacrifices  to"  lis     p 
the  prosecution  of  the  war.    The  Labor  members  replied  thaHh  " 

unions.     The  government  eventually  did  so,  but  before  this 


70 


BRITISH    LABOR    CONDITIONS 


AND   LEGISLATION 

took  place  an  indus.rial  dispute  arose  i„  ,he  settlement  of  which 

he  u„,o„,s.s  ,  ,.a,ne,l  certain  concessions  which  exercsed  I^  h 

The  n„":,r  ""'""'  "''"''"'""'  '"'"'™  ""=  government  and 

worth'  fT"  ""'  '"  ""=  '^'""^'^  '^"'^•■^  °f  Armstrong.  Whit- 

gJ  ifritaiT'^r  '""W"  '"''"  ™^'"-""S  «™^  '" 
entrel  "'"  "■*"*  ""'  "  "^^-  ""'^  "o^'^ing  almost 

ent  rely  on  government  work.     The  companv  had.  contrarv  ,„ 

r  de  un,on  rules,  engaged  unskilled  workers  from  "  dep  sed 
■ndustnes,  coppcrsnnths.  lacc  makers,  co-ton  operatives    s>  ver 

muhs,  and  the  like,  and  put  ti,em  to  work  on  skilletl  job,  ill 
engineers  and   sh.plnulders  objected  and   posted   noiices  of  a 

A  conference  between  the  management  and  delegates   from 

reached  which  was  to  become  nperative  until  the  question  could 
be  referred  to  a  central  conference  l^tween  .he  unions  an  te 
employers  federation.  The  nnportant  terms  m  this  provisional 
agreement,  most  of  which  m  one  form  or  another  a.er  were 
mcorporated  ,n  the  Munitions  .Act.  were  as  tollows : 


The  subsequent  national  negotiations  with  the  emplove-s  d,d 
n,,t  result  ,n  any  agreement,  but  the  provisional  agreement  w,tn 

when  the  government  took  up  the  matter  of  trade  union  rules 
>  L.bo.r  Yeor  Book.  1916,  p.  SS.    Cole.  Lciour  in  War  Ti,,,,.  pp.  i;4-I75. 


▼«  t'«,im..M 


l.fH  -K.' 


the  government  and  the  trade  unions  71 

Rkports  of  the  Committee  on  Production 

The  Committee  on  Prockiction  issued  four  reperts  from  Febru- 
ary 10  to  March  4  indosive.  dealing  respectively  ^^ith  (1) 
"  Irregular  Time  Keeping."  i  2  i  "  Shells  and  Fuwes  and  Avoid- 
ance of  Stoppage  of  Work."  (:',  >  "Demarcation  ot  Work."  and 
(4)  "  Wages  in  Shipbuilding  Trade." 

The  refjurt  on  irregular  time  keepinq^  in  ship  yards,  issued 
February  Hi.  dealt  with  the  failure  to  attam  the  maximum  ';utput 
of  work  iiecause  of  time  lost  hv  rivetinjr  M|uads.  Kivetmi:  i^ 
carried  on  by  "squads"  <jr  groups  of  -.vorkers.  When  iny 
member  of  the  squai'  was  absent,  his  place  was  not  filled  hut  :*e 
whole  squad  remained  idle.  The  comtnitttr-  did  not  indicate  -n 
any  specific  way  how  the  difficulty  was  to  he  overci*ne.  but  urge^! 
that  the  parties  directly  concerned  should  make  an  erfort  t^  arrive 
at  some  satisfactory  arrangement.  If  an  agreement  \va>  rot 
reached  within  ten  days  the  committee  recommen<led  that  any 
outstanding  difference  shoukl  be  referred  lo  the  committer  \nr 
immediate  and  tinal  settlement. 

The  report  or  shells  anr'  fuses,  issued  on  Feim.iary  2o  deaf 
with  trade  union  rules  whicn  had  the  effect  of  limiting  the  'Utput 
of  munitions  of  war. 

Restrictive  rules  or  customs  cakulated  to  aflEsrt  th-  [jroductwMi  of  muni- 
tions of  war  or  to  hamper  or  imi>*ftc  any  rea.^onjnJe  ^ttp^  tu  achieve  a  iiiax- 
imuTTi  output  are  under  present  circumstances  senowKly  hurrfui  tn  the  welfare 
of  the  country,  and  we  think  they  should  be  suspeiWed  during  th*'  period  of 
the  war,  with  proper  safeeuards  and  adjustments  t©  protect  the  interests  of 
the  work  people  and  their  trade  unions.' 

The  committee  recommended  that  the  men  making  shells  and 
fuses  ^honh!  relax  their  practice  r)f  confining  their  earnings  or  a 
piece  ratebasi-^^o  "  time  and  half  "  or  whatever  the  locnl  'Standard 
might  be.  Tt  r.'cognized  that  the  ])ractice  had  been  adopted  t- 
prevent  cutting  of  piece  rates,  but  pointed  out  that  the  govern- 
ment was  the  only  consumer  of  •iheH';  and  fuse?  and  had  no  motive 
for  cutting  rates.    Tt  recommended  that  firms  making  shells  and 

*  Labour  Casctte.  1915.  p.  ^^ 


nrifw>muiiiimi,iif  '• 


"2  BRITISH    LABOR   CO.VDITIONS   AND   LEGISLATION 

adhesion  10  .he  rerrnlti:':'"''  ""'""^  '"  "^^'^^  '"- 

work  people,  „„  stoppage  of  toVbystrit  f^'l'  '"r"  '""""'"'  "■"• 
work  for  government  purposl'f^.he  evem  oT  d'ff  ""  ""  '""  '" 
fa.l  to  be  settled  by  the  parties  dire«lv7n  f  ^'Terences  arising  which 

or  under  any  exiting  agreements  he  'rTn'  ^'  '"  ""''  '"•'"""»>-'>. 
-ribunal  nominated  by  HUMaLtvl  »  ""  '''"'"'  '°  »"  '"'P'"'" 

Hon  and  report  to  .^/«o;^:i:i:.'^f,HTrratt;rnf '^  "™"- 

the'LTk  pelrthf:"'  "'  P"'"""  °'  "^^  '"<"=  -»-  and  of 
"ic  wuFK  people,  the  committee  recommenfl^rl  fi,,.  c 

w.uv.         .         ^°  ""■•'^»)«'y's  Government 

.icTrJl'n^  '„  rur'ror^hopsrdT"";  "■""■■"'  ""  »"  '"^  '"e  prac 
for  the  period  of  the  war  """''•  ''"°'-  '°  "-e  war  shall  onl/^ 

.he''po::rn"or,r:o:^  ;oV:':!r'emT" "-' "- """-"'  -  ■>--*« 

in  regard  to  the  resumpti^Hld  maTn  /nT:  :T,::;  ,t  °'  ""'f  '"-"  ""-- 
customs  «is„„g  prior  ,o  the  war  """  """  '*"■  *"  "f  any  rules  ot 

In -y  readiustment  of  staff  which  may  have  to  be  effected  after  the 
^Labour  i^ftte.  1915    p   83  ^'icciea  arter  the  war. 


1  i' 


THE  GOVERNMENT  AND  THE  TRADE   UNIONS 


73 


priority  of  emiiloyment  will  be  given  to  workmen  in  out  employment  at  the 
beginning  of  the  w»r  who  are  serving  with  the  colors  or  who  are  now  in 
our  employment. 

Name  of  firm 

Date 1 


The  third  report  issued  I)y  the  committee  dealt  with  the  suhjects 
of  demarcation  of  work  and  utilization  of  semi-skilled  or  un- 
skilled labor. 

The  committee  urged  that  in  grjvernment  establishments  where, 
apparently,  demarcation  restrictions  were  not  numerous,  they  be 
at  once  suspended.  In  private  engineering  and  shipbuilding 
establishments  they  also  recomiuendwl  the  suspension  of  tlemar- 
cation  restrictions  on  work  required  for  government  purposes 
during  the  continuance  of  the  war.  accompanied  by  the  follow- 
ing safeguards : 

(a)  Men  usually  employed  on  the  work  to  be  given  the  prefer- 
ence. 

(b)  If  suitable  labor  were  not  available  locally  men  might  be 
brought  from  a  distance  if  the  work  were  of  sufficient 
magnitude  to  warrant  the  transfer  and  if  the  work  would 
not  be  delayed  by  waiting  for  them. 

(c)  The  customary  rates  should  continue  to  be  paid  for  the 
jobs. 

(d)  A  record  of  the  nature  of  the  departures  from  the  statu 
quo  should  be  kept. 

fe)   Difficulties  arising  hetween  the  parties  which  they  had 

not  settled  should  be  referred  within  seven  days  to  the 

Board  of  Trade  for  speedy  settlement  and  in  the  meantime 

there  should  be  no  stoppage  of  work. 

(f)  The  same  form  of  guarantee  to  work  people  prescribed 

in  the  Stoppage  of  Work  report  should  be  adopted.' 
The  second  part  of  this  report  dealt  with  the  utilization  of 
semi-skilled  or  unskilled  labor.     The  committee  recommended 
the  use  of  such  labor  whenever  an  employer  working  on  govern- 
ment work  was  "  unable  to  meet  the  requirements  because  of  his 

^lahour  Castile.  1915.  pp.  83-84. 


BRITISH    LABOR   CONDITIONS   AND  LEGISLATION 


74 

protect  the  interes  soHh''^  I'    T"'''  '""  '"'ju^'"'-",^  ,o 

n,«.,io,  „,.„™j ,;™™' "  "«""■"«..■.  ~»«- 

^r^xir"- ""?«-•■■*  ;■■■ 

and  called  for  a  resumption  of  work  on  March  1        "  ^    '"** 
ing  strike,  wh.ch  have  already  rn^n      "*  '^""^  ^"^""^- 

AMEND.MENT    OF    THE    I>EFENSK   OF   THE   ReaLM    AcT 

The  Defense  of  the  Realm  Consohdation  Act,  1914  (5  Geo 
It..  1910.  so  that  Subsect,on  3  of  Section  1  read  as  follows- 

sor.  or  .he  plan,  .hereo,  ;  ZZtlLZ'         '  7  "'°''"''°''  °'  «>"'"" 

Pla„.  .hereof;  (e)  ,o  re,„™  .„  w„7.  "T:  '""?'"  "^  ""'"''"P  '"■»"'' 
'lone  in  accorda„ce  w,.h  .he  d,r«  ,„I  o,  he  a".  ^^  "^  ""'"'">'  '<>  ^ 
•he  Nrinister  of  .Mun,,„„s,  gi  e^wS  .he  obf  r'7  ''  I'-  '""''  ^°'"'"'  °' 
workshop,  or  .he  plan,  or  l.hor  .^  '        °'  "^'""8  ""=  '""ory  or 

ducon  of  w.r  maur?  , ".  "^  /tT.uU.e""'"'  "■''°"""'  '"'  *'  ^™- 
»n;   work  ,„  any  fao.or,    workshon  or  ^  h  '^    '"  ""  ""'i"«  '"'  "f 

or  employn,en.  of  .„v  w;rZeft  or  all  or  ,  [  "T'"' T  ""  ""^-K""^"' 

'  Labour  Cairll,,  1915,  p.  84. 


THE    GOVERNMENT    AND    THE    TRADE    UNIONS 


75 


<luir«d  for  any  irticlei  for  use  in  wiri  and  («)  to  Ulce  pouniion  of  my 
unoccupied  prcmisei  for  the  purpoie  of  houiing  workmen  employed  in  the 
production,  ilorage.  or  traniport  of  war  material:  and  regulations  under  this 
act  may  be  made  accordingly. 

It  is  hereby  declared  that  when  the  fulfilment  by  any  person  or  any  con- 
tract is  interfered  with  by  the  necessity  on  the  part  of  himself  or  any  other 
person  of  complying  with  any  requirement,  regulation  or  restriction  of  th'^ 
Admiralty  or  the  Army  Council  or  the  Minister  of  Munitions  or  llic  Food 
Controller  under  this  act,  or  any  regulations  made  thereunder  that  necessity 
is  a  good  defense  to  any  action  or  proceedings  taken  against  that  person  in 
respect  of  the  nonfulfilment  of  the  contract  so  far  as  it  is  due  to  that 
interference. 

In  this  subsection  the  expression  "  war  material "  includes  arms,  ammuni- 
tion, warlike  stores,  and  equipment  and  everything  required  for  or  in  con- 
nection with  the  productioi^thereof.i 


.;*■'.  - 


The  Treasury  Conference 

Armed  with  this  persuasive  measure  the  government,  on  the 
day  following  the  passage  of  the  above  amendment,  invited  rep- 
resentatives of  the  Trades  Union  Congress,  the  General  Federa- 
tion of  Trade  Unions  and  of  the  principal  unions  in  the  industries 
producing  commodities  for  government  use  to  a  conference  with 
the  Chancellor  of  Exchequer  (Mr.  Lloyd  George)  and  the  Presi- 
dent of  the  Board  of  Trade  (Mr.  Runciman) 

to  consider  the  general  position  in  reference  to  the  urgent  need  of  the 
country  in  regard  to  the  large  and  a  larger  increase  in  the  output  of  muni- 
tions of  war,  r\nd  the'  steps  which  the  government  propose  to  take  to  ftr- 
gani,-e  the  industries  of  the  country  with  a  view  to  achieving  that  end,' 

The  invitation  was  pretty  generally  accepted.  Besides  repre- 
sentatives from  the  two  federal  bodies  above  mentioned,  there 
were  representatives  from  unions  in  the  following  industries: 
engineering,  shipbuilding,  iron  and  steel,  other  metal  trades, 
wood  workers,  laborers,  transport,  woolen  and  boot  and  shoe. 
The  Miners'  Federation  of  Great  Britain  was  represented  on  the 
first  day.  but  its  representatives  withdrew  because  they  were 

^ManuaU  of  Emergenet  Legislation.     Defense  of  the  Realm  Manual.  3d 
enlarged  edition  revised  to  February  28,  1917.  p.  3  (a) 
'Labour  Year  Book,  1916,  p.  59. 


re 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


Sif„r"  '"  """""  '""  '"'""  P-PO-"'  f°^  C0™p„,so„ 

said  that  it  callc.,1  '!r  ,he  Ml^  *      '^'  '*"'"'  '^^  ""'' 

to  ..b™,,,  i'lKsz  "it':,  ""T"  ■•"^•■" 

f  *t  day  »ew  alcne  th,  t  !  !  P"'^'"'*  ^"hmitied  the 

(a)  the  Committee  on  Production- 

■  ioiour  Kfor  Buok.  p.  78,  note. 


IHE   GUVEHNMENT    AND   THE    TRADE    UNIONS  77 

«ny  practice  ruling  in  their  ^liops  or  yards  at  the  beginning  of 
the  war;  (b)  to  give  preferenct  of  employment  to  workmen  in 
their  employ  at  the  beginning  of  the  war:  (c)  to  pay  semi-skilled 
men  called  upon  to  perform  wcrk  which  had  been  done  by  skilled 
workers  the  usual  rates  of  the  .listrict  for  that  work;  (d)'to  keep 
a  record  of  the  nature  of  ihe  departure  from  conditions  prevail- 
ing at  the  time  f  the  agreement  and  to  keep  this  record  open  to 
inspection  by  tlie  authorized  representatives  of  the  government; 
(e)  to  give  notices  to  the  workmen,  wherever  practicable,  of 
changes  in  working  c.  nditions  which  it  was  proposed  to  intro- 
duce, and  to  furnish  an  opportunity  for  consultation  with  them 
or  their  representatives»and  (f)  to  settle  disputes  without  stop- 
pages of  work  b>  one  of  the  methods  abtjve  descrilied.' 

The  representatives  of  all  the  unions  represented  at  the  ci  n- 
ference,  except  the  Amalgamated  Society  of  Kiiginecrs.  endors.  ' 
the  proposed  agreement.  It  seems  to  have  been  generally  under- 
stood that  the  agreement  reached  at  this  Treasury  Conference 
was  an  agreement  entered  into  by  the  unions  there  represented. 
but  in  form  it  was  merely  an  agreem -nt  of  the  sij;ncrs  to  "  recom- 
mend to  their  members "  the  propos„N  submitted  by  the  com- 
mittee. Mr.  .Arthur  Henderson,  the  Chaimi.in  of  the  W  orkers' 
Representatives  at  the  conference,  said  that  the  agreen  -nt  had 
no  binding  force  until  it  iiad  been  submitted  to  the  unions 
concerned.' 

The  failure  of  the  representatives  of  the  Nmalgamated  Society 
of  Engineers  to  sign  the  agreement  was  considered  by  the  gov- 
ernment to  be  a  serious  omission,  in  view  of  the  strength  of  that 
union  in  the  munitions  factories.  The  representatives  of  the  en- 
gineers felt  th.it  ilie  agreement  did  not  sufficiently  safeguard  their 
members,  and  they  were  also  dissatisfied  because  the  agreement 
did  not  express  the  government's  declared  intention  to  limit  war 
profits. 

A  further  conference  between  Mr.  Llo><I  George  and  Mr.  Run- 
ciman  and  the  representatives  of  the  .Amalgamated  Society  of 
Engineers  was  held  on  March  25,  and  the  followi  .g  important 

'  Labour  Year  Bonk.  1916,  pp.  60-61. 
"  Cole.  op.  cil.,  p.  185. 


"■'•ocopr  msoiurioN  ibi  omit 

(ANSI  and  ISO  TtST  CHART  N«.  J| 


w 
u 

25 


l£    |Z2 

11.8 


1.6 


^ 


^PLIED  INV<3E    In, 

^653  EqM  Main  SltHt 
(716)  2aB-i9«9  -  Fa« 


78  BRITISH    LABOR   CONDITIONS  AND  LEGISLATION 

additions  to  the  agreement  were  made,  after  which  the  engineers 
gave  their  signatures  to  the  agreement. 

1.  That  it  is  the  intention  of  the  government  to  conclude  arrangements 
T\  '  '  .""P""""'  •'■■"s  =">8Wl  wholly  or  mainly  upon  engineering  and 
shipbn,ld.ng  work  for  war  purposes,  under  which  these  profits  will  be 
imited  with  a  view  to  securing  that  benefit  resulting  from  the  relaxation  of 

trade  restrictions  or  practices -shall  accrue  to  the  state. 

2.  That  the  relaxation  of  trade  practices  contemplated  in  the  agreement 
relates  solely  to  work  done  for  war  purposes  during  the  war  period. 

A  I  hat  in  the  case  of  the  introduction  of  new  inventions  which  were  not  in 
existence  m  the  prewar  period  the  class  of  workmen  to  be  employed  on  this 
work  after  the  war  should  be  determined  according  to  the  practice  prevailing 
before  the  war  m  the  case  of  the  class  of  work  most  nearly  analogous 

4.  I  hat  on  demand  by  the  workmen  the  government  department  concerned 
win  be  prepared  to  certify  whether  the  work  in  question  is  needed  for  war 

5.  That  the  government  will  undertake  to  use  its  influence  to  secure  the 
restoration  of  previous  conditions  in  every  case  after  the  war» 

The  government  proceeded  at  once  to  appoint  the  advisory 
committee  provided  for  in  the  agreement,  naming  as  the  mem- 
bers thereof  the  seven  labor  leaders '  who  had,  as  members  of 
the  subcommittee,  presented  the  proposals  to  the  union  repre- 
sentatives at  the  Treasury  Conference. 

The  Treasury  Conference  agreement  was  very  favorably  re- 
ceived by  public  and  press  throughout  England.  This  much  is 
admitted  by  Mr.  Cole,  who  is  throughout  critical  of  the  recom- 
mendations, the  effect  of  which,  he  says,  "  was  to  weaken,  rather 
than  to  strengthen,  trade  unionism."  Mr.  Lloyd  George  was 
very  enthusiastic  over  the  results  of  the  conference  and  said  that 
the  "  document  that  was  signed  on  Friday  night  ought  to  be  the 
great  charter  for  labor."  ' 

1  Labour  Year  Book,  1916.  p.  61.    Cole,  op  cit    pp.  188  189 

J'o/J''}^"'  Henderson.  M.P.   (Ironfounders).  Mr.  C.W.  Bowerman 

Tjifn-mf"R"'f"'\7i5°";'"iV«>,'  ^r-  W-  Moses   (Pattern   liakm)™"' 
John  Hill  (Boiler  .Makers).  Mr.  A.  Wilkie,  M.P.  (Shipwrights)    Mr   Frink 


THE   GOVERNMENT   AND   THE   TRADE   UNIONS 

Admi.t,strai.on  of  the  Treasurv  Agreement 


79 


withwages"butwiththe™a„agell^„:,t^^^^^^ 
Speakmg  enthusiastically  of  t!,e  committee  formed  on"he  nor'th 
east  coast  which  had  on  it  seven  representativeTof  workers  Id 
seven  of  the  employers,  Mr.  Cole  has  this  to  say  o7the  possf 
bihties  of  the  new  system :  P 

-  .he  firs,  definite  :"drffiX':„nonTf  The  1m"  f.^"™"  '°  ""'"'^ 
say  in  .he  managemen.  of  their  own  Mus.ries  H^  e  V  'v""?""  '°  * 
Ihe  nominees  of  the  workers  -neelThJ-     t  .u  '  '"'  ""'  <>"'  '''^'• 

discuss  no.  merely  wages  hourTor.on^,  "".r""'  ""  «lual  terms,  to 
ness  of  production  Under  stress  of  ,h,"'  °'  '"'"'  ''"'  ""  '«"»'  •"■"- 
recog„i„d.  however  ^'n^  «  "p'arer'sTS.;*:'  "°*"=  "'  """'' 

th7?'\T  '^,^","'^^^^g="'t  statement,  especially  in  view  of 
the  fact  that  shortly  after  the  Munitions  Act  was  passedthese 
commutees  disappeared  and  their  work  passed  into  the  hands  of 
officials  created  under  the  authority  of  that  act-    The  real  sie 
nificance  0   the  committees  lies  in  the  fact  that  in  the  n  w  Ian 
zauon  of  industry  being  developed  as  a  result  of  war  nleds  th" 
ret gTZtir  '^'"^  ^^'"  "^°^"'°"  -  -  '"'  P-  of 
The  Committee  on  Production  appointed  by  the  government 
m  February  continued  its  work  during  the  sp.ing  of  101,,   et 
deavonng  to  prevent  stoppages  of  work  on  government  cont;ac^ 
by  adjusting  wages,  generally  allowing  increases  in  the  C  "f 

'  Labitur  year  Book.  1916.  n.  62 
'  Cole,  op.  cil.,  p.  198. 


n 


ill     '  :i: 


so  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

"  war  wages,  recognized  as  due  to  and  dependent  on  the  ex- 
istence of  the  abnormal  conditions  now  prevailing  in  consequence 
of  the  war." '    The  wage  settlements  seem  to  have  been  mi.de 
m  accordance  with  no  general  principle,  such  as  the  increase  in 
cost  of  hvmg.     In  some  cases  this  seems  to  have  been  the  con- 
trollmg  motive  as,   for  example,  on  the  Newcastle-upon-Tvne 
tramways  when  higher  allowances  were  made  "to  employe, 
who  are  ho.,seholders  "  than  to  single  men,  and  in  other  cases 
where  bonuses  were  allowed  only  to  men  receiving  below  a  cer- 
tain stated  sum  per  week.     In  other  cases,  however,  other  con- 
siderations dominated,  as  in  the  cement  trade,  where  "  the  ad- 
verse effect  that  the  war  has  exercised  and  is  exercising  upon  the 
cement  trade  "  was  sufficient  to  influence  the  committee  to  allow 
no  further  increase  of  wages  beyond  the  5  per  cent  advance  volun- 
tarily offered  by  the  employers.' 

Meanwhile,  trade  disputes  which,  as  we  have  seen,  reached 
their  mmimum  in  intensity  in  December,  19U,  began  to  increase 
at  a  rapid  rate  in  the  early  part  of  1915,  as  is  shown  by  the  fol- 
lowing  table : '  /     >-  lui 

MoNia  OiL°L  No-  "^  WOKK  People  ArrecTED 

December,  1914..  ,7  »■;«*    D'^«tly  and  Indirectly 

January.  191S....::  :.•:;•■■■   ]„  ■]«         ''"^ 

February,    1915 4;  ,^'^^«  ^.(«2 

March,   191S    ....  jI  f'lf,  2»W 

April,  1915 2  f?^  "■^^' 

May,  1915 «  ^''fj  5.577 

June,  1915 ■■  »  ?,Z  ^'^"^ 

From  the  governmental  standpoint  the  most  serious  phase  of 
this  increase  was  that  the  disputes  -.vere  mainly  in  those  indus- 
tries, engineering,  coal  mining  and  transport,  upon  which  the 
mcreasmg  output  of  munitions  of  war  was  mainly  dependent 
Most  of  the  dsputes  were  over  the  question  of  wages'and"n 
spite  of  the  activity  of  the  Committee  on  Production,  it  was  evi- 

*  Ihd.,  pp.  66,  104,  141,  183,  222,  261. 


THE   GOVERNMENT   AND   THE   TRADE   UNIONS  81 

steps  «ert  taken,  however,  an  event  occurred  which   further 
tended  to  comphcate  matters.  " 


The  Drink  Problem 

nf'^^':'?'',^'""^'  """'''  *  '"'''  °f  'P^^<:hes  in  April  in  one 
0  wh,ch  he  Ia,d  great  emphasis  upon  the  influence  o^  "he  Z 
of  drmk  "  among  the  working  classes  as  a  factor  respons  We    o 

circulated  by  the  newspapers  and  was  quickly  seized  upon  by 
those  who  were  advocating  prohibition  of  the  use  of  intoxicants 

reZt'orros'tT-     ■^'^  ""'r'  '"^  ^"^"^^  ^^--  P«--abi 
repo  t  on  lost  fme  m  war  mdustries  which  was  presented  to  the 

o"nTal°r'DaTM:;  ^  '''■  "'°^''  "^°^^'  ^^  ^  ™<''  P""'= 
The  report  claimed  that  in  the  Clyde,  Tyne  and  Barrow  dis- 
r,cts  the  s,tuat,on  in  respect  to  shipbuilding,  repairs  and  mun  - 
tions  of  war  work  put  briefly  was 

ditions.i  "r"iniiry  wee        vork  under  normal  peace  con- 

Instances  were  cited  where  the  time  lost  by  riveters  in  the  ship- 
yards "equals  abo..  35  per  cent  of  the  normal  week's  work- 
platers  2o  per  cent;  and  the  caulkers  and  drillers  about  22  per' 
cent.      Among  fitters  on  submarine  engine  work  "  on  the  aver- 

work  "  "T:  '"!:'\"'.''^^  '"-  'hree  quarters  of  a  da/s 
work.  The  problem,"  n  was  said,  "is  not  how  to  get  the 

workrnen  to  mcrease  their  normal  peace  output,  but  how  to  get 
them  to  do  an  ordinary  week's  work  of  51  or  53  hours  as  the 
case  may  be.    ' 

tra'n^pr,"are"al  p'1'""  °'  ''"  '""'  ■■'="  '"  ^^Pbrnlding,  munitior.s  and 
'  Ibid.,  pp.  2,  3,  S. 


62  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

Tht  rtasons  for  the  ,os5  of  lime  (continues  the  report)  arc  no  doubt 
vanous  bu,  ,,  ,s  abundant],  dear  that  the  most  potent  i.  in  the  facS 
whKh  «■«  for  men  to  obtain  beer  and  spirit,  combined  with  ,he  high  .te 
nnanrous  """"  °'  '"""°^"""''    °^'"'°"  °°  "^  -""'  "  "'-"""' 

A  great  rleal  of  statistical  evidence  was  submitted  bv  employers 
m  the  shipbuilding  industry  to  show  the  extent  to  which  lost  time 
due,  as  they  believed,  to  excessive  drinking,  interfered  with  the 
output.  The  report  summarized  this  evidence  in  the  following 
statement :  * 

The  evidence  is  really  overwhelming  that  the  ma'      -,se  of  this  alarming 

he  Adm      1,"  1,      ""  "'  ':''"'■    ■''"=  '=""''°>"'         -  "-o^'  emphafcTy* 
the  Adm.ralty  have  received  elaborate  reports  empn.,si,inB  the     ame  con 

ThrHome  oV"  "'  "-ipbuilding.  repairs,  munitions  of  war  and  trTnsport 
manzed  above  are,  ,n  themselves,  strong  evidence  that  drink  is  the  cause  A 
weTand  t'heref'.^^'.h'  "°*""  '""  """""  '">'  """  "-"BHout  ,h. 
or  due  to  any  general  mdustnal  condition.  The  worst  time  is  generally 
kept  after  wages  are  pa,d,  and  at  the  beginning  of  the  following  week  When 
absence  from  work  occurs  the  workman  is  usually  absent  for  several  days  to 
gether.  Staleness  and  fatigue  no  doubt  must  arise  from  working  during 
long  hours  over  an  extended  period,  but  inasmuch  as  half  the  men  are  not 

elsewhere.    The  testimony  of  observers  in  each  district  is  that  drink  is  by  far 

hourTT.  r"""'"'-  '""'■ ■^'"  =""'"«""  "'"'  ""  ■^>"«  of  irregular 

^hTon".  '"!"'"  """  '*"*"'  '"  =<""P'"'ly  disposed  of  by  obse^ing 
l^.Z  ,"^'  "-?L'  T*'""  "  ""'o"""'"")'  "ot  so  great  as  the  standard 
m  t,,^e  of  peace.  The  figures  show,  not  that  workmen  who  have  been 
worktng  long  hours  for  days  together  occasionally  take  a  day  off,  but  7hat 
wh^  f=nT  *°t"""  "'"""'^'"^  "«*'>'  day  by  day  for  long  hours,  those 
who  fail  to  work  even  ordinary  hours  are  continually  repeating  this  failure.' 

While  the  evidence  to  the  effect  that  much  time  was  lost  in  the 
shipbuilding  yards  on  account  of  drink  seems  overwhelming  it 
must  be  said  that  the  impressions  left  by  the  report  were  more  or 
less  unfair  to  the  majority  of  the  men  in  the  engineering  and 
shipbuildmg  trades.  This  was  pointed  out  in  the  report  by  one 
of  the  factory  inspectors.    He  called  attention  to  the  fact  that 

irregular  time  is  confined  largely  to  certain  specific  trades:  riveter,,  caulker,, 
platers,   nggers,  and  to  a  very  much  less  extent,  engineer,  are  th,.  chief 
1  Report,  etc.,  p.  15. 


Ijii 


THE  COVERNMEKT   AND  THE  TKADE    f.V.OKS  83 

"r^ier^,;^--^--;::^ -r-  —  --.  .n. ... 

ofErTi^'/HSofnir'"^'-"^  "•-  "-  '^^  -'>•  cause 

we  have  alread/obsl:  ^Z  "  ^ra:^:,!'^'"''".'^'''''- 
squads.    When    for  anv  r„  P'^'"*  working  in 

to  appear  four'  or  five  "'  ""?  T""'"  "'  '"^  «'"=«'  f'"^" 
days' woric  and  .he'  UiLeTf"  he  °"  "  '""'''"^'  °^  ""'  => 
employer's  statistics  "'  ■"'"  """'^  «S"^^  i"  'he 

absLts^oT^'^retsthilh^T'  "■^'"  °"  '"^  -»-  '-  '"e 

ap.aceintheeX::;::r^:^srx:::^'"^-- 

and  will  no,  I„s,  w,  j„i,'i,  hX/  H^ ''"°"'' ^^  '^  .ndispensable  a,  pr„e„., 
e™  with  a  partial  wert',  work  to  L„  hi^"''^-  "''  "  ''"^'^''"' 
The  machine  tnen  ,vorldng  undercover  ar,^  "■"  ,'"'  '"""'  '"  """°«- 
"o.  the  same  temptation  To  lie"ff  Lain  ,1  "  "'"'''■■"'>'=  ^hoP  and  have 
and  being  time  workers  they  an  not  make  „„  ^J  T  "  "'"'""'  ""■^''  '«'• 
Another  important  point  fr'equen",;'  o7e,  „Xd  7.'  T'  '^  "  '"'"''  '''""■ 
the  extraordinary  scarcity  o(  skiUed  labor  m.      1  "  "'""'■  ""'"B  '<> 

never  be  employed  on  account  oheirrrrerT  T". '"  °''''"">'  '™«  «"ld 
yards,  and  materially  affect  the  number  of  tse?''  "'  "  ^""^  '"  "->' 
convmced  that  the  "black  squad 'T; J.  *''« Josmg  t,mc.  Briefly,  I  am 
■he  social  position  of  th  man  eamfnT  0^°:  „'"'  ""'  """  '"'"=''  -^"^ 
«l"al  to  that  of  a  professionarman      tL    T    '  *■"  ""'"■  """"""ation  is 

*  lf"fi:     p.    25. 

'  Cole.  ol>.  cil.,  pp.  200-207. 


ioSo«r  Year  Book.  1916,  pp.  62-63. 


84 


BKITISH    LABOR   CO,\DITIONS   AND  LEGISLATION 

Ministry  of  Munitions 


Dissatisfaction  with  the  progress  of  the  war  caused  a  chan™ 
in  the  government  in  May,  lOir.,  The  Lilwral  Ministry  resigned 
and  Its  place  was  taken  by  a  Coalition  Ministry  in  which  Labor 
was  represented.  On  the  !.th  of  June  a  new  government  depart- 
ment was  created  known  as  the  Ministrv  of  Munitions,  "  for  the 
purpose  of  supplying  munitions  for  the  present  war,"  •  and  Mr 
Lloyd  George  was  appointed  Minister  of  Munitions  "  to  examine 
into  and  organize  the  sources  of  supply  of  any  kind  of  munitions 
of  war." ' 

At  first  it  was  believed,  and  apparently  by  Mr  Lloyd  George 
himself,  that  the  Defense  of  the  Realm  Acts  conferred  upon  him 
sufficient  power  to  control  the  labor  situation.  It  was  soon  seen, 
howevLT,  that  there  were  important  gaps  in  that  legislation.  They 
gave  the  government  power  to  take  over  any  private  works 
needed  and  to  order  the  workers  to  work,  so  long  as  they  re- 
mained there,  exactly  as  the  government  directed,  but  it  did  not 
confer  upon  the  government  power  to  compel  the  workers  to 
remain  in  its  employ.'  In  other  words  the  government  had  no 
authority  to  prevent  strikes.  There  was  much  talk  about  this 
time  of  "  conscription  of  labor." 

Every  one,  it  wm  urged,  who  wa,  not  a  >oldier  or  a  worker  in  some  ab- 

mlr-tn!"",,     ,."■;'''•  '"?"'■'  •"  '°"='^  ■"'"  ""  "■"'■^"8  "*  munitions,  and 
martial  law  sliould  be  proclaimed  in  the  workshops.* 

In  order  to  formulate  a  policy  for  the  conduct  of  his  work 
the  Minister  of  Munitions  held  a  number  of  conferences  with 
labor  leaders  to  discuss  proposals  for  meeting  the  emergency.' 
The  National  Labor  Advisory  Committee  appointed  by  the  gov- 
ernment as  a  result  of  the  Treasury  Conference  agreement  in 
consultation  with  the  minister  drew  up  proposals  which  were  put 
before    '  a  full  conference  of  trade  union  leaders  representing 

4.  p'  r"*  *  ^°-  '•  '■  ^''    ^''"'"''  "f  ^'""■S">'y  LegUlalwn.  Supplement 
'  Order  in  Council,  June  16,  I9I5. 
'  Labour  Year  Book,  1916,  p.  63. 
*  Cole,  op.  cil.,  p.  208. 
»/iW.,  p.  215. 


THE   GOVERNMENT   AND   THF   T..,.. 
,1,  .  .  "^   TRADE    UNIONS  as 

the  munition  industries  "  ■    Tl, 

'he  conference  though  a  mino  L"o7,r'"'  '' ' '"''^-"^y  o! 

opposed  to  the  provisions  for  coL  "^P'^'^^^ntathes  were 

Thus  prepared,  the  Mun^^ons  B  1  "'' "''''""■°"- 
"iatively  ,i,„e  discussion  w  ^pL!^"  r^V"',™'"""  ^""  ^^'■"- 
and  became  the  Munitions  of  VV^r  a«  I»f"  °"  -^"'^  ^ 

'Cole,  oft.  (■,■»     n    7H       Tc 


CHAPTER  V 

The  Munitions  of  War  Acts 

Tiie  Munitions  of  War  Act,  11)15,  together  with  its  amend- 
ments (constituting  practically  a  revision  of  the  act)  of  January 
27.  I'Jlii,  and  August  21,  I1I17,  is  the  most  important  piece  of 
labor  legislation  which  has  been  enacted  by  Parliament  during  the 
war.  Its  foundation  is  the  recommendations  of  the  Committee 
on  Production,  made  in  February  and  March,  1915,  modified  and 
enlarged  by  agreements  entered  into  between  the  government  and 
leading  trade  unionists  at  conferences  held  in  March  and  June, 
as  already  related.  The  act  is  entitled  "  An  act  to  make  pro- 
vision for  furthering  the  efficient  manufacture,  transport  and 
supply  of  munitions  for  the  present  war;  and  for  purposes  i"- 
cidtntal  thereto,"  and  it  was  made  necessary  by  a  realization  of 
the  fact  that 


ar  overwheltning  supply  of  munitions  of  war  for  Great  Britain  and  her 
allies  was  the  essential  element  in  the  successful  prosecution  of  the  war,  and, 
to  attain  this,  the  organization  of  an  important  section  of  the  British  indus- 
trial world  upon  a  new  basis  became  inoerative.* 

Although  the  act  has  been  severely  criticized  by  some  of  the 
labor  writers  and  socialists  in  Great  Britain,  eve  i  to  the  extent  of 
calling  its  acceptance  by  Parliament  "  scandalous." '  and  of  say- 
ing that  its  enactment  came  "  like  a  thief  in  '.ho  night." "  yet  it 
must  be  remembered  that  leading  trade  unionists  and  members  of 

'  T.  A.  Fyfe :  Etiiployen  and  Workmin  under  Ike  Munilions  of  War  Ada, 
2d  ed..  p.  1.  For  purposes  of  con"enient  reference  I  have  in  addition 
to  referring  to  the  sections  of  the  lunitions  Acts.  191;  atid  1916.  made 
references  to  the  text  of  the  codification  of  the  .lets  as  given  by  Mr.  Fyfe. 
In  my  abstract  of  the  principal  provisions  of  the  act  1  have  also  made* 
free  use  of  Mr.  Fyfe's  comments  anil  interpretations,  which  is  justified  by 
the  fact  that  Mr.  Fyfe.  in  addition  to  being  chairman  of  a  munitions  tribunal, 
is  a  judge  of  His  Majesty's  courts  in  Glasgow. 

•'Cole:   I.ahow  in   War  Time. 

•Mary  Mc.Xrthur:  The  Woman  Worker,  January,  1916,  p.  S. 


THE    MUNITIONS    OF    WAR    ACTS  '  „ 

the  Labor  party  were  consulted  at  every  stace  of  i..  „ 
and  enactment  an.l  are   indei.,!   ll    ,        ^  PKparat.„n 

and  substance  of  the     1,     u  tth  f'  '"•""""'  '''  ''"=  ''''"' 
standpoint,  the  Muni.:::,  2   ^I  :;::,::,!'""'  ''"■"  "  '="'°' 

^";T^r;^dr-^7^^ 

-.^.vern.ent.s^X™^-f:t^r^r;;:: 


"long  >vi,h  .he  .™cndm.„„  i  'an  e^ti;  n.t'a'c"""'"""'  °'  '"  '""'" 
In  many  respeos  the  •>«  seems  to  have  been  drafted  h,.i,       ^ 

c-s«wh^f',Si^ii:ifrf^:-'r-'^--- 

In  the  follownig  abstract  of  the  main  provisions  of  the  act    T 
have  not  attempted  -o  follow  the  order  in  whichThV 
•ions  appear  in  the  parliamentary  measure  "™"'  "" 

the  act  IS  divided  into  three  narf«     Part  T  ,i«,i       ■.,.  j-,^ 

'  p<'-^t'-  cil.       ■  ed.,  p.  2. 
'S«.20(2),  ,  2d.d„p.83. 


88 


UHI    ISII    LABOR   CONDITIONS   AND   LEGISLATION 


controllt.1  ejublishments,"  rates  of  wa^es  and  limitation  of 
profits  m  such  establishments,  restrictions  on  the  right  to  employ 
and  he  employed  un  mtmitions  work,  conditions  unMer  which 
ttwrkers  m.iy  leave  or  be  discharRed  from  such  service,  and  the 
conditions  under  which  female  labor  may  lje  employed  on  muni- 
tions work.  Part  111  (made  up  largely  of  amendments)  deals 
with  the  power  of  the  Minister  of  Munitions  to  regulate  or  re- 
strict the  work  of  any  factory  or  to  remove  machinery  to  any 
other  factory  or  to  control  the  supply  of  materials  for  the  purpose 
of  increasing  the  production  of  munitions.  It  also  deals  with 
matters  of  inspection,  wiih  information  to  lie  furnished  by 
employers,  with  munitions  tribunals,  with  penalties,  and  with  the 
definition  of  terms  used  in  the  act. 

I  he  Munitions  Acts  may  be  considered  as  an  extension  of  the 
Defense  of  the  Realm  Acts,  e.specially  of  those  portions  which 
deal  with  the  production  of  munitions.'  They  authorize  the  Ad- 
miralty or  Army  Council  or  Minister  of  Munitions  to  take  pos- 
session  of  and  use  for  the  purpose  of  naval  or  military  iervice 
any  factory,  workshop  or  plant  and  to  regulate  or  restrict  the 
carrying  on  of  any  work  or  the  employment  of  any  workmen 
therein,  or  to  remove  the  equipment  therefrom  with  a  view  to 
increasing  the  production  of  munitions,  or  to  regulate  and  control 
the  supply  of  materials  that  may  be  required  for  articles  for  use 
in  war.' 

In  order  that  the  Minister  of  Munitions  may  have  at  hand  the 
information  necessary  to  enable  him  to  decide  on  the  availability 
of  any  establishment  for  the  production  of  munitions,  the  owner 
of  any  establishment  in  operation  may  be  required  to  furnish  to 
the  Minister  any  information  requested  by  the  latter  as  to  the 
persons  employed  and  the  nature  of  their  work,  the  machinery 
used,  the  costs  of  production  and  other  relevant  matters,  and  to 
submit  his  premises  and  books  to  inspection  by  authorized  in- 
spectors in  order  that  they  may  obtain  such  information  or  other- 

pp!  a'-?"""'"   "'  ^"•"•(""'■J'  Ltgithtion:  D,f,nu  of  the  Realm  Manuel, 

J"  Defense  of  the  Re3:m  Act,  sec.   1    (2)    fai      riti,^,.   «v  *i.-    d    i 
Tai^,.  UT"-     ''"""'°"'  ""  '^"^^'-  P'"  l".  "«•%  Fyt 


U  i 


THE    MUNITIONS   OF   WAR   ACTS  gg 

wi«  determine  ,he  avaiUb.li.y  of  .he  es.,l,lish,..n.  for  munition. 

Meaning  of  Munitions  Work 
The  term  "  munitions  work  -  has  been  given  a  very  wide  mein- 

upon  ,t  In-  the  appeal  tribunals.  The  amended  act  mal<es  it  in 
elude  no,  only  arms,  ammunition  and  the  Ilk.  I„  ,  'T.  n,Z 
art,cles  or  parts  of  articles  in.en.le.l  or  a.Iap,  ■  „  se  ■  Mva '  " 
and  the  appeal  tribunals  have  interpret.,  fhis  ;,„::,„, 
suitable  for  use  m  war."  This  does  not  mran  however  ,bf 
anyth.nR  which  is  "capable  of  use  "  in  warT  . 

phrase     "ntended  or  adapted  for  use  in  war,"  said : 

i"  '•  furthering  ,he  .ffic  rt  n,.nuf7.r    .  ""'""'"""""  "'  'h'  article, 

P".  of  the  definition  the  .  ti.;  „  /cZe^ird'-  '^"  '",  ""'"^"'•'«  "-i. 
i.  inconclusive  .nd  ni.y  be  ir  el  v',n°  f  it,  ,,  "'  '"""''"'■  "'  ""  '"'"' 
article  will  ,,„  „i,hi„  ,h.  express  "L,  '■  a1  ,'V""  '"  '"""''"'•  ""= 
when  used  disjunctively  from  "mended  •,-„  ^  ''  ""'"  '"  """  '"'""'■ 
«t  of  the  intended  use.  '    '""""  '°""=  '"""'"«  Mt^nd- 

It  was  accordingly  held  that  the  repair  of  railway  wagons  he 
bngmg  to  a  colliery  was  "munitions  work."  since  , 'he  ewa^s' 
hough  no,  at  the  time  being  used  for  war  purposes  we7e"ar 
tides  adapted  for  use  in  war."  • 
The  act,  as  amended,  provides  that  "munitions  work"  shall 

Fr'f^»t'?;;'.  ;',  Ylh^"'  ""■  "-  "•  ^mend.  Act,  19,6,  «c.  ,6  and  ,7 

Jf™"'."'-  Act.  19,6.  sec.  9  (a).    Fyfe  p  82 
Mr.  Ju'sn'Je'ATlcTn's'le'c'isiSn''  '"""  '"  """""<'  ■'"  "-  interpretation  of 


:< )« i 


Mi 


II      ' 


90  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

also  include  the  construction,  alteration  or  repairs  of  building 
machinery  and  plant  for  naval  or  military  purposes,  including  the 
erection  of  houses  to  accommodate  munitions  workers;  the  con- 
struction, repair  and  maintenance  of  docks,  etc.,  where  such  work 
IS  certified  by  the  Admiralty  to  be  necessary  for  the  successful 
prosecution  of  the  war,  and  work  necessary  for  the  supply  of 
light,  heat,  water  or  power,  tramway  facilities  or  fire  protection 
where  the  Minister  of  Munitions  certifies  that  such  supply  is  of 
importance  for  carrying  on  munitions  work.'    The  act  does  not 
specifically  declare  the  production  of  raw  materials  or  the  mining 
of  coal  or  ore  as  munitions  work.    No  formal  order  of  the  Min- 
ister has,  as  yel.  been  issued  to  include  such  work  and  the  appeal 
tribunals  have  declined  to  pass  upon  it  in  advance,^  but  it  may  !« 
noted  that  formal  orders  have  been  issued  specifying  the  manu- 
facture of  such  articles  as  lead  compounds,  constructional  steel 
lime  and  all  materials  wholly  or  partially  manufactured   from' 
woo   as  munitions  work.'    The  Minister  has  also  recommended 
employers  to  refrain  irom  encouraging  miners  to  transfer  their 
services  to  munitions  factories,  and  to  assi.st  men  who  had  been 
engaged  in  coal  mining  to  return  to  the  mines  if  thev  desired 
to  do  so.* 

Doubts  having  arisen  as  to  the  meaning  of  the  words  "  work- 
man and  "  workmen  "  under  the  original  act,  the  revised  act 
declared  that  these  expressions  shall 

buf^^kn""/  ""'"  '^77  "'''°''  """"  "'''""*<'"'  "nsists  in  manual  labor, 
but  also  foremen,  clerk.,,  typist,,  draughtsmen  and  other  per,ons  whose 
usual^occupanon  consist,   wholly  or  mainly  in   work  other'.han  ma^al 

Controlled  I^stablisuments 

We  have  already  observed  that  many  trade  unionists,  especially 

those  engaged  m  the  engineering  and  shipbuilding  trades    when 

urged  by  the  government  to  abandon  for  the  period  of  the  war 

their  rules  restricting  production  and  employment,  met  this  pro- 

>  Munitions  of  War  Amend.  Act,  1916,  sec.  9.    Fyfe  ol>  cit    n  82 

'  Chartres,  »^.  dl..  p.  4.  and  note  '    ''       '  "'  '*'■ 

»Fyfe,  pp.  181-182. 

«Circi.l,ir  letter  71.  October  16.  1915.  cited  by  Fyfe  n  8 

»  Munitions  of  War  Amend.  Act,  1916.  sec.  12.  ^Fyf?;  p.  83. 


THE    MUNITIONS   OF    WAR    ACTS  9, 

government  work.     The    unoIemrT'  "^^'^  '"""'"'^  f™"" 
with  representatives  of  L  A    T  "Sreement  entered   into 

following  the  T  ea Lrv  cJ"'''^'T'"  """"''^  "'  ^"^ineers, 

its  promise  to  limit  nrofit.  j '  -^  '  "  °^  ""^  '^''"'".  ^"'1  contains 
in  the  production  :  m^  t  ns  f;."'^"'  ".''"'/-''ments  en,a,ed 
this  promise  was  carHed  cut  wal  thr'  7t  "''"""'  ''"^  '^''''^ 
are  known  as  "  contro  led  ell.  V      ^^.^  ""  "S™*^^  "^  ^^h^' 

in  Part  u  of  the  m::":;!:^;:' ""'^  "^^"  ""^  p^'-"-^ 

"co,^.-'':  "lTr\""''  '"^^^"'  °"  "•"""'•'-ns  work"  are 

cor.   ..r,   "tal'lishments."  although  the  Ministernf  ivr     ••■ 
may    'y  .  -der.  declare    any    establLll;      f  '^""'""ns 

work  •    is  carried  on  to  he  .  f      ,"'^,'"^"'    "'''"'=    "munitions 

^l^   XT     ?  ^""^  contemplated. 

(6)  No  changes  in  the  rates  of  wages  or  salarv  nf 

Ploye  in  such  establishment'ha  l  4  JId  'umfl  X" 
proposed  change  has  been  submitted  to  tht  Ms 
of  Mumtions,  who  may  withhold  his  consent.    Eihe; 
the  Mmister  or  the  owner  of  the  establishmenrmay 

'  .;^r';r«°i,"'-  ^"'  ""■  «'•  -■     An,e„a.  AC   ,„6,  ,ec    ,      PWe 
M..,„o.„,w„Ac.,,„5,.c.4n,.„c.5a,,a,.    KH.,pp:«,«: 


92 


BRITISH   LABOR  CONDITIONS  AND  LEGISLATION 


i 


then  require  that  the  matter  be  submitted  to  arbitra- 
tion in  the  manner  provided  by  the  act.' 
By  an  amendment  made  to  the  act  in  1917  the  undertaking 
which  the  owner  of  a  controlled  establishment  was  deemed  to 
have  entered  into  was  made  to  include  an  undertaking  not  to 
change  piece  prices,  time  allowances  or  bonuses  on  output  or  the 
rates  or  prices  payable  under  any  other  system  of  payment  by  re- 
sults unless  this  change  was  made  by  agreement  between  the 
owner  and  his  workmen  or  under  certain  conditions  by  direction 
of  the  Minister.  This  provision  was  not  to  apply,  however,  to 
changes  in  the  rates  of  wages  made  by  order  of  the  Minister  in 
the  case  of  female  workers  employed  oh  munition  work  or  in  the 
case  of  wages  paid  in  shipbuilding  yards  where  special  rules  were 
made  applicable.' 

(c)  "Any  rule,  practice,  or  custom  not  having  the  force  of 
law  which  tends  to  restrict  production  or  employ- 
ment shall  be  suspended  in  the  establishment."  but 
the  owner  is  deemed  to  have  entered  into  an  under- 
taking to  restore  such  rules,  etc.,  at  the  close  of  the 
war,  and  to  give  preference  in  employment  to  former 
employes.  In  order  that  this  undertaking  may  be 
carried  out,  this  part  of  the  act  continues,  as  already 
mentioned,  for  twelve  months  after  the  close  of  the 
war.  The  Board  of  Trade  is  made  the  judge  as  to 
whether  any  rule,  etc.,  tends  to  restrict  production 
or  employment."  The  rules,  practices  and  customs 
to  which  reference  is  here  made  are  those  dealt  with 
in  the  Treasury  agreement  and  relate  to  such  matters 
as  the  restrictions  imposed  by  the  unions  on  the  in- 
troduction of  machines,  the  rules  forbidding  women 
or  semi-skilled  men  from  doing  skilled  work  and  the 
limitations  on  hours  demanded  by  the  unions,  the  use 
of  nonunion  labor,  etc.    Not  all  the  rules  which  the 


1  Munitions  of  War  Act,  1915.  sec.  4  (2) ;  1916,  sec.  2.    Fyfe.  p.  63. 

2  Munitions  of  War  Act,  1917,  sec.  8.    British  Industrial  Experience   vol 

1,  p.  263. 

» Munitions  of  War  Act,  1915,  sec.  4  (3),  (4) ;  sec.  20.    See  also  schedule 

2,  Fyfe,  pp.  64,  83,  84-85. 


THE   MUNITIONS   OF   WAR  ACTS  93 

"u"fr •  jr^"-  ""^  "■-  '-^  "own  by 
^        unions.    In  one  case  dealt  with  bv  the  m^h 

tion  of  profits  iJ^it^erhrV'"  '^'"« '"^^^^ 'h^  l™ita. 
the  restrictive  rule"""  the  ,rlt""  u*""  '^'  '™"™'  "f 
the  employer  to  a  result  on  of  th?'°"''  "'"'^  ''  "^'^^  '"  '''"'» 
of  the  war  Although  Thl.  -^  '"■'''^'  '"''"'"'  =«  '^'^  -^'ose 
not  specifically  imitef to  the  :™  ""'''"'^''  «'^'"-h-ents  -  is 
it  seeL  ,0  have  b"  n  in  ;!  '  "  :"7ir^;"'  shipbuilding  trades, 
of  the  original  aclto  Hm^t  I  ""'  'T'"  °^  '''"^  =^«'™s 

and  thusmeetthe  s^u     r   sedatthTrTe       "?"  '°  "'"''  '"^« 
Amalgamated   Society   of   Eng  „ee  J     ul      J"^"" ''^ '''^ 

amendments  to  the  act  were  big  consid^ed   it"         ""=   "'*' 
-^^he..  g.e  a  broader  mLni:^tt;-^.SS 

hon  workers  employed  therei^.-L:?  -rTflorwt 
Mu„..,o„s  or  War  A™e„ci.  Ac...  ,,,5,  .„.  ,    p„,  „^  ^,.,^  /^^  "^" 


II' ' 


94  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

women  and  girls.  Since  that  date  the  proportion  of  female  labor 
has  mcreased  considerably,  but  no  figures  are  available  which 
show  the  extent  of  the  increase. 

Although  the  undertaking  given  bv  emplovers  to  restore  pre- 
war conditions  in  their  establishments  at  the  close  of  the  war  as 
contained  in  schedule  two,  would  seem  to  have  been  sufficiemlv 
broad  to  cover  the  exclusion  of  nonunionists  where  such  ex- 
clusion had  been  the  rule,  unionists  were  apparently  not  satisfied 
with  the  statement  and,  in  the  amended  act,  succeeded  in  having 
this  point  specifically  mentioned.' 

Munitions  Volunteers 
Mention  has  already  been  made  of  the  agitation  for  industrial 
conscription  which  was  taking  place  in  Englana  during  the  spring 
of  1<J15.  Mr.  Lloyd  George's  earlier  speeches  indicated  that  he 
favored  the  idea,  but  he  later  expressed  himself  as  not  being  in 
sympathy  with  this  demand.  He  is  quoted  as  having  said  at  a 
conference  with  representatives  of  the  unions  on  June  10: 

lab?/a,'tn  "am't""  T""T'°"  "'  '"'°'-    '  '■""■'  ''""  conscription  of 
™„«  n^^  .  ""    .'°  ""  "  '°  '"  "'"'  ">  "!"«  ™n  »here  they  ar. 

most  needed  »o  increase  the  output  of  munitions.s 

While  the  Munitions  Act  does  not  provide  for  "  conscription 
of  labor,"  It  does  impose  such  restrictions  on  the  employment  and 
mobility  of  laborers  who  volunteer  to  work  in  controlled  estab- 
lishments as  to  giv;  this  employment  more  or  less  the  character 
of  military  service.  Munitions  volunteers,  as  thev  are  called 
enter  into  an  agreement  with  the  Minister  to  work  at  any  con^ 
trolled  establishment  to  which  they  are  assigned  and  to  remain 
there  for  the  period  of  the  war,  or  for  at  least  six  months  If 
hey  fail  to  comply  with  the  undertaking  they  become  liable  to 
penalties."  Subject  to  penalties  for  disobedience  employers  are 
forbidden  to  dissuade  their  employes  from  volunteering  to  do 
munitions  work  or  to  retain  in  their  employment  munitions  volun- 
teers who  have  received  notice  from  the  Minister  of  Munitions 

■Munitions  of  War  Amend.  Act,  1916,  .,ec.  IS.    Fyfe,  op  cit    m  64-65 
'Quoted  by  Cole:  Labour  in  War  Time.  p.  2U 
>  Munitions  of  War  Act,  1915,  sec.  6  (1)     Fyfe  p  67 


'i     I' 


95 


THE    .ML-.N-ITIO.VS    OF    «•.„ 

">« 'hey  are  ,0  work  in  ,         '  °'  "^"  -^"-^ 

"'^o  forbidclen  to  dLcharrT  """^  "'^Wishmen...     Thev  . 

s"ch  <l.smissal.=  "     "'"«  "as  reasonable  cause  "fo 

The  usual  mode  of  ,m„i     •  "^ 

o^vner  of  a  controlled  eTtabli?  "'""'''"''■'  ™'"""="^  is  for  ,h. 

'"-a.er  of  .be  central  la      '  tt:'  '"  "^'^  ^-PP"-"-  -o  th^ 

uarfi  '''"'"^  "-^  ""-l^r  de  -^f;"^;^  '-  »ar  munitions  volun 

q«l<ficat,ons,  the  wages  and  ho  rs'o        7"'"'°"'  """  »P-ial 
■>"<!  sign  an  agreement  to  eZ  '''""' ""-er  condiLns 

a  »  contain  tl,e  .leCarat  „  ,;r  i;"'"^^;  "■»  application  must 
h's  employ  on  private  work  T  I  ""P'"^'''  ^as  not  already  in 
■^acle  capable  for  the  vork  t  "  °  ""  ^^P^""^  "^  who  ca„  ," 
X^^  "as  not  succ^dtl"  ::,rin?  ''t  '^"^ '-'  '^'-  e  " 

wales  TbT't'r  "*"""-- -So;:,:^-;. '"-  '""■' 

"ses,  (oj  the  sum  necessar,, .         ■  *^  '"^  district  ratp  ,.f 

between  the  district  ra  e  nd  th^''^  "P  ""^  "'fference  i  al) 
f-e  his  enrolment  as  muni  '  ns '"r™"  '''  "^^  --km L  £ 
Pnses,  including  raihvay  fare  :rtb'"'"''  ^'^  'raveling  ex- 
P«;on  of  the  work,  and  whe  ne'e  ~"""™«'"ent  and^com- 
at  'he  rate  of  o,  ,,  dav  fL  et  :,^:/'  ^'"'^'^'-"  allowar'e 
.  /'  ^  <^'«arly  understood  thatrt,r  k  ^'  '"  "'^  "-"k. 
■"'e"ded  to  enable  any  worknl'      '"''?"""  ^'"''"'ance  is  not 

When  the  workman^s  re  iden         """^  "  P^™"iary  profit 
^^"ce  of  his  place  of  wo  r  he  rec'^-  """i"  •'^"-V  'raveLTdis- 
^c  ets  and,  if  the  distance  'traew';""^  ™^'  "'  --''-a  's 
'vay,  he  ,s  paid  one  hour's  travlbn    T    ^'  """-ha'f  hour  each 
t-e  and  a  half.'  '^^""=''"?  '""e  p.r  day  at  the  rate  of 

J  he  munitions  volunteer.  „r, 
".  ;?:.-^^estion  of  the  N^t.tr^dvtrc  "' '''  ^°~'" 


96 


BRITISH    LABOR   CONDITIONS   AND  LEGISLATION 


of  trade  union  leaders,  as  an  alternative  for  conscription  of  labor. 
The  plan  was  introduced  even  before  the  enactment  of  the  Muni- 
tions Act,  1015,  and  90,000  men  had  registered  as  munitions 
volunteers  by  July  10  of  that  year.  There  are  no  figures  available 
which  show  registrations  after  that  date.  In  November,  1916, 
the  plan  was  extended  by  the  trade  card  exemption  system,  under 
which  whole  unions  enrolled  as  munitions  volunteers. 

The  successful  operation  of  the  plan  was  hindered,  however, 
by  employers  through  patriotic  motives  and  by  other  obstacles 
so  that  less  use  was  made  of  the  p'an  than  had  been  expected. 
The  plan  has  been  revived  and  extended,  however,  since  ''le 
abolition  of  leaving  certificates  in  the  fall  of  1917. 


The  Dilution  of  Labor 

Much  has  been  said  in  the  discussion  of  war  labor  legislation 
concerning  the  "  dilution  cf  labor."  This  apt  expression  has 
reference  to  the  introduction  of  semi-skilled  or  female  labor  to 
do  work  which  before  the  war  was  usually  performed  by  skilled 
labor.  Such  substitution  in  the  munitions  trades  had  already  been 
proceeding  at  a  fairly  rapid  rate  before  the  government  directly 
interested  itself  in  the  question.  The  Board  of  Trade  estimated 
that  in  February,  1915,  the  increase  in  the  number  of  females 
in  the  engineering  trades  was  26.4  per  cent  over  the  21,000  which 
the  census  of  1911  reported  as  employed  in  those  trades.  The 
number  of  men  in  these  trades,  on  the  other  hand,  showed  a  con- 
traction of  9.1  per  cent  as  compared  to  1911.' 

The  unionists  in  the  engineering  trades  offered  strenuous  op- 
position to  the  introduction  of  women  aid  of  unskilled  labor  into 
these  well  organized  trades,  especially  where  efforts  were  made 
to  use  this  labor  to  accomplish  what  was  regarded  as  skilled  work. 
We  have  already  noted  that  the  government  yielded  to  this  op- 
position to  the  extent  of  making  a  separate  agreement  with  the 
Amalgamated  Society  of  Engineers  in  Alarch,  1915,  to  the  effect 

that  in  the  case  of  the  introduction  of  new  inventions  which  were  not  in 
existence  in  the  prewar  period  the  class  of  workmen  to  be  enr  'oyed  on 

1  Edith  Abbott:  "The  War  and  Women's  Work  in  Erslui.d,"  Journal  of 
Political  Economy,  July,  1917,  vol.  25,  p.  662  . 


THE    MUNlno.VS   OF   WAR  ACTS 


^ervmg  with  ,he  colors;  an,l  TTZ  ,h  ?'  ""<•  '°  "">'-= 

b«  Paul  to  semi-skilled  and  femaieMh^'  ""  '""''*"'  "'«*  should 
-ork  .vhich  had  been  skldTat  ^^"::-":<'  "'""  '""-^'orn, 
ficent,  ,t  was  believed,  ,o  caulV-h,  I  ,  '"'^^^^^s  were  suf- 
'rades  of  female  and  umkilledJahnr    ''"P'r*"™'  '"  "'^  ■''<i"ed 

The  Munitions  Ac.  of      15  '^    ?  V""  "°^^  °^  "-^  >™^- 
Pro-nises  by  Schedule  2  aid    /  '3"  ^e  J°  T'^  "^""''^  ""=- 
'■=hments.    A,  ,he  same  time  it  Lie  ,h.   ?'       ""'^°"'''  '^'ab- 
employers  to  make  use  of  slmiTklled       ?T ^"^°""fi-">ent  .0 
labor  wherever  it  was  pos   bT  t  "nt  u'^"'  """^  °'  '''"ale 

fons  thereby.  With  the'ex  e^ion  r,h''\r''  ™'P"'  °'  "'""'- 
owners  of  controlled  estabnC.l  k  "^''S^"""'  '''"posed  on 
precautions  in  regard  Tth  IZtn  t'f  faf^'"'^  ^  "°  ^P^^' 
Munitionsof  War  Act  I015  ^''°''  "'  '"""d  '"  the 

^"^^i^s^ri^ir^ts  ^'"'"^ '--'  --^- 

the  government  in  September  193  ^  '•""'  ""^'^  eooperation, 
representing  .he  NationaTLabor  Ad,'"""":^''  '  J"'"'  ™"""'"ee 
whose  members  were  inc  nd  d'and  ri^""""""  ^"^^«  "i 

-;-nH-a.iona?KetSonrft2i- ^r-' ^- 

In  October    101'^    tW 

Labor  Supply  Commit.e:^;Tu^a^'r''°"^"  "^  ^""■■'-- 
■n  regard  to  the  dilution  of  labTr  and  be  "  "^''"""enda.ions 
were  issued  to  employers  in  Or.nh  %  "'"'""'"'"''^"•ons  " 

cular  L3,  ^   ^        '"  ^'=*°^''  as  Circular  L2  and  Cir- 

^  Labour  Year  Book,  1916,  p.  70. 


98 


BRITISH    LABOR    COXUITIOXS    AND    LEGISLATION 


ik 


I  " 


Employment  anu  Remlneratio.n  of  Women  anu  Unskilled 
Labor 

Circular  L-2  dealt  with  the  "  employment  and  remuneration  of 
women  un  munitions  work  of  a  class  which  prior  to  the  war  was 
n'  t  recognized  as  women's  work  in  districts  where  such  work 
was  customarily  carried  on,"  It  dealt  with  rates  of  wages  and 
allowances  for  overtime  and  holiday  work,  conditions  under 
which  women  might  be  employed  on  piece  work  or  the  premium 
bonus  system  and  contained  a  recognition  of  the  principle  "  that 
on  systems  of  payment  by  results  equal  payment  shall  be  made 
to  women  as  to  the  men  for  an  equal  amount  of  work  done." 
.'\fter  the  amendment  of  the  act  in  1!)1(!,  the  government  made 
the  adoption  of  the  provisions  of  Circular  Lii  mandatory. 

Circular  L3  related  to  the  "  employment  and  remuneration  of 
semi-skilled  and  unskilled  men  on  munition  work  of  a  class  which 
prior  to  the  war  was  customarily  undertaken  by  skilled  lab.ir." 
Originally  issued  as  mere  "  recommendations "  of  the  Minister 
of  Munitions,  t*—  provisions  of  this  circular  were,  after  the 
Munitions  of  War  Amendment  Act.  1!>1«,  had  been  passed, 
isjucJ  f.'  government  orders.  The  "  general  "  clauses  were  as 
follows : 


1.  Opera'ijns  on  which  skilled  men  are  at  present  employed  but  which 
by  reason  of  Iheir  character  can  be  performed  by  semi-skilled  or  unskilled 
labor,  may  be  done  by  such  labor  during  the  period  of  the  war. 

2.  Where  semi-skilled  or  unskilled  male  labor  is  employed  on  work  iden- 
tical with  that  customarily  undertaken  by  skilled  labor,  the  time  rates  and 
piece  prices  and  premium  bonus  times  shall  be  the  same  as  customarily 
obtained  for  the  operations  when  performed  by  skilled  labor. 

3.  Where  skilled  men  are  at  present  employed  they  shall  not  be  displaced 
by  less  skillea  labor  unless  other  skilled  employment  is  offered  to  them  there 
or  elsewhere. 

4.  Piece  work  prices  and  premium  bonus  time  allowances,  after  they  have 
been  established,  shall  not  be  altered  unlesf  the  means  or  method  of  manu- 
facture are  changed. 

5.  Overtime,  night  shift.  Sunday  and  holiday  allowances  shall  be  paid  to 
such  machine  men  on  the  same  basis  as  to  skilled  men. 

The  circular  also  recommended  time  ratings  for  the  manu- 


11  ti) 


THE   MUNITIONS   OF   w^„   ^„S 


f  -■    •"•"  ACTS  no 

to  ffive  dtrectioiis  as  to  tl 

r.  .•.'.'.sr?  ""","■'•"  •'  ■'""■.,  -•■.",;;?,■ "" "  *• 

ister  was  (subject  tn  th.         ;"""««■•  of  Munitions,  the   Min- 

shops  Acts,  mi  :'u';zT  "V''  '''"'">■ »""  ^^'''^- 

to  the  ra.e  of  wage"  or  as  .„T    '"1     '°  «'^'^  '"^'"■o-^^  as 
employment."  »  '"  ''°"'"'  °'  '»"»■"  or  conditions  of 

^a^.-^Mltt'::^:?^^  Mi„..er.-contro,  e.tenC.d  „,.h 
worUTs,  where  ■    wl  ZtV;:'"!  '  f"'"  "'^  "^  "^  -ale 
to  se,ni-s,<i,W  and  unskMer  a     r  ::';*"  ".''""■;''-nts  and 
bein^  sl<illed  work.     The  reasons  f.^™'"^  '"'  ""^  "'""^ 
«.e  of  female  labor  are  nl   en"i  J^         f "'"  ^""•^°'  ^  '"e 
to  the  fact  that  the  men  weTe  ^e,'^;;":; '-.' -^P-'«Wy -lue 
trades  and  felt  able  to  control  IL/^^^"""'  '"  «''«  *''"ecl 
and  also  to  the  fact   hat Tverl    T"°"  "  "'''  ^'"^^  "'  ^™^''. 
tions  of  emplovmentandtven  r       ™""°'  °'  "'  '^°""'  ™"1'- 
something  which  had  long  since  won'/"     •  *°"""  ^'"'''"^  '™' 
It  is  probably  also  true  tha   o^an  rXr' '^  "  "^T  '"'^'■"• 
the  introduction  of  fema'-  labor  im     .1      ,        "'  °^'^'^'°"  to 

'- .». ..  ™-  „  J:  sr„risr.s  ;r- 


100  BRITUU    LABOR   CONDITIONS   AND   LEGISLATION 

cation  is  clearer  than  any  l^ne  based  upon  classes  of  men."' 
The  government  has  undertaken  to  deal  with  the  question  of 
women's  wages  and  work  not  only  by  making  Circular  L->  man- 
datory but  by  the  appointment  of  a  special  tribunal  with  Lyndon 
Macassey  as  chairman  and  with  two  women  among  its  six  mem- 
bers, whose  functions  are  to  act  aj  an  arbitration  tribunal  to  which 
the  Minister  may  refer  differences  relating  m  the  hours,  wages 
and  working  conditions  of  women,  and  to  advise  the  Minister  in 
his  dealings  with  these  matters.  The  general  tendenc)-  of  the 
regulations  has  been  to  increase  women's  wages,  but  many  diffi- 
culties have  arisen  in  the  effort  to  sec  that  women  were  paid  at 
tic  same  rates  for  the  same  work  as  was  performed  by  m:n  when 
automatic  machinery  has  been  introduced. 

The  Amending  Act  of  11)17  broadens  greatly  the  power  of  the 
Minister  of  Munitions  as  to  the  regulation  of  wages.  If  he  con- 
siders it  necessary  in  order  to  maintain  liie  output  of  munitions 
to  give  directions  as  to  the  remuneration  c  f  laborers  employed  in 
controlled  establishments  on  time  rates,  he  may,  subject  to  any 
agreement  which  has  betn  entered  into  between  employers  and 
the  workmen  with  his  consent,  give  such  directions  as  he  may 
consider  necessary.  A  violation  of  these  orders  is  punishable  in 
like  manner  as  violations  of  an  aw::rd  made  in  case  of  a  settlement 
of  differences  between  the  partiti.' 

Another  section  of  the  1917  Amending  Act  provides  that 
where  an  award  as  to  wages,  hours  or  conditions  of  employment 
has  been  made  under  Part  I  of  the  act  of  1915,  or  in  pursuance 
of  an  agreement  between  work  people  engaged  in  the  manufacture 
of  munitions,  and  the  Minister  of  Munitions  is  satisfied  that  the 
award  is  binding  upon  employers  employing  the  majority  of  the 
employes  in  any  branch  of  trade,  he  may  direct  that  the  award 
shall  be  binding  on  all  or  any  employers  and  persons  in  the  trade, 
either  without  modifications  or  with  such  modifications  as  shall 
insure  that  r:>  employer  shall  be  enabled  to  pay  less  wages  than 
are  required  to  be  paid  by  parties  subject  to  the  original  award." 

»  Kirkaldy :  Labour,  Finaneit  and  the  Wi^r,  p.  136 

'  ^'SSi''""'  °'  '^"  ^"'  ""•  ''^'^-  '•    Bnlish  Induilrial  Ezperiince,  vol, 

•  Munitions  of  War  Act,  1917,  s«.  S.    British  litdmlrial  Experience,  vol. 
1,  p.  ibi. 


"'   "•""".ON,   OK   W.H   ACTS 


101 


■nate  migration  of  labor  neede,!  „  '•  P'"'"'  'h*  indiscrim 
of  Prevfntion  was  .„  f  u.  "  munition  plants  Th  '^"'"■ 
munition,  work  ,       /"""."  '"'P'''^'"  '•'  te"   „  I''' '""'"''' 

he:r  employment  in  order  o  accTn  ""  T"""""'  ""^''  to  I  av" 
h.^  particular  employer.     Pena  feV'"     '"  ""  "'■-"'"^hme  t  o 

■n  a  more  direct  way  w?th  re  ,  ,V    '  ""  "^°^'  ^^^^  made  ,o  de 


'  I 


i  II 


lOi'  IIKITlSIl    I.AUIIR    CCNUITIONS    AND    LEGISLATION 

act.  I-alidrcrs  complained  thai  the  restrictions  on  their  right  to 
seek  wurk  in  other  inunitiuns  plants  than  those  in  nnich  they 
were  for  the  time  being  employed  were  iKing  taken  advantage 
o(  by  employers  to  hinder  their  employment  umler  conditions 
best  not  only  for  themselves  but  for  the  country.  New  muniti  ms 
plants  were  lieing  cstal)lished  all  over  the  country  and  the  services 
of  skilled  workers  were  in  great  demand  as  foremen  and  man- 
agers and  for  giving  instructions  to  unskilled  laborers.  I'.mploy- 
ers  by  their  refusal  to  release  workers  to  take  such  places  were 
preventing  i  skilled  laborers  of  the  countr>  from  being 
employed  in  most  advantageous  ways.     Another  ground  of 

complaint  was  that  employers  were  using  their  power  to  refuse 
"  leaving  certificater  "  as  a  means  of  tliscipline.  Since  laborers 
could  not  be  lawfully  employed  for  a  period  of  six  weeks  after 
they  left  their  employment  unless  they  possessed  "  leaving  certifi- 
cates "  they  were  forced  either  to  reniam  in  their  present  situa- 
tions or  to  accept  the  penalty  of  idleness.  It  wa-s  also  said  that 
employers  in  granting  "  leaving  certificates "  endorsed  them  with 
comments  on  the  conduct  of  their  holders  and  thus  made  it  more 
difiicul.  to  secure  employment. 

With  a  view  to  rcr-iedying  these  difhculties,  as  well  as  to  over- 
come certain  difticuliics  in  interpretation  of  such  words  and 
phrases  as  "  workmen  "  "  munitions  work."  etc.,  the  Amendment 
Act  of  January,  lUlU,  iul>5titutcd  for  Section  7  of  the  original 
act  a  new  section  (Xo.  .">),  which  made  more  specific  the  obliga- 
tioMs  cA  munitions  "'bunals  to  grant  "  leaving  certificates  "  where 
they  we"e  unreasonably  withheld  by  employers.  They  might  also 
require  the  employer  who  had  infused  such  a  certificate  to  pay 
to  the  Ialx>rer  a  sum  not  exceeding  £.'»,  unless  the  laborer  was 
guilty  of  misconduct.  '  ir  the  purpose  of  securing  his  dismissal  or 
discharge.  This  penalty  was  also  made  applicable  to  the 
employer  of  a  workman 

who  applies  for  a  certificaie  on  the  ground  that  he  has  for  a  period  of  more 
than  two  days  been  given  no  opportunity  of  earning  wages,  or  who  lerves 
his  employment  on  account  of  conduct  on  the  part  of  the  employer,  or  a.iy 
agent  of  the  employer,  which  would  justify  the  immediate  termination  by  the 
workman  of  his  contract  of  service  in  lilce  manner  as  if  he  had  Iwen  di 
missed  or  discharged  by  his  employer. 


THE    MUNITION.,  „,   war   ACTS 

The  workman  wa,aNoun<W, I,.  '"''' 

-  »  ««l<',  „,,,„  .,f  i„;;„^,    ■     P--',-,n  or  ,hi,  s„.io„  en.i„..d 

»,"""«)  '"  "^  week-,  wage,   unl    ;T  r  '"'";  "^  ""  '""  "<  *"ch 
•';«m.,M|  within  twenty-!,,  ,", '  ?P'"^"  ''r«'""'  >"ch 

PO'aryorcli,con.inuou,ctrT2  ,;^  ^.r^''  "''^  "'  '^  "n-- 

upon  ,o  determine  .he  C^aTo;":  '"''""="  ""«'«  '-  "1I...I 
'he  employer  to  pay  a  -fum  'ot  ex  e  .""7  """  ""*""  "'I'""' 
-here  the  ,rib„„a,  found  That  1"  1,  ''  ''''  '"  ""  "-^•"»" 
<"»n,.-.nff  him  without  a  wetk-ln";;:     ""  '"""  °'  ""''  '- 

amendment  of  ,o,«,,hL.,,>;X"7"'""  """*  '"   'h^ 
d.ssa,„faction  to  laborers  employed  in     ™"""""  '"  '^'^^  ""^t 
o    the  reason,  f„r  this  d.ssatTsSoV.       T'"""  P'"""'     «"' 
al.ho,„h  the  act  .lid  not  apply  to  worVrf     '"  "^  ""  '-'  'ha' 
h'hmen.,.  employers  in  such  e  stabTsh  "  .'"f'^"'  '"  "'■"  «'ab- 
workers  who  did  not  have  •  le"wn™  '  '""*'*''  '"  '"-ploy 
.«"al„e,  imposed  upon  emplo  erlhfrin;     'f '•    '"  ^'"^  "'  'h« 
P'ants.    "  In  „,her  words."  savs  M     ?  T^'"  '''""  ""■"''ions 
«.e    ha,  come  to  be  recop,i,ed  „te  in'i    '.     ?  '  '"""'^  ""i«- 
•"ort  to  employment."  "  ""  '"•'"^"■■al  world  as  a  pa,*- 

^fSr^rt^irtt^fS:^-— u,.ted 

ask   from  a  local  n.unitions  tnbunal  ".n         '  "  "'"■''"  ""sh, 
which  would  state  tha,  in  the  en ini  >n'  ?"."''"''''""  «"■""<« 

---otbeenemployedonSriSr;^: 

^^v:^«^;::^""e;::-^--hytheac..o,rant 
--"  -•"  order  to  undertake  wo.k,:  : V.^"""  "'  '««  his 
personal  qualifications  could  be  Z,,  T  '''  *"'  *'"  <"•  other 
<°  the  national  interests  o  ^hTfuIll"  '  '^'"'"  ^''-^"'ai 
apprenticeship  and  .lesi;ed  to  obtain  th'eVr'"""'  ="  '"^  "' 
wages,  but  these  matters  wer- le  f'n  ,  ""  "'"■''"^  ^ate  of 
'he  munitions  tribunals  and""  ^[^.^ZlT  '"!""'"'  "^ 

ases  the  workman  was 


104  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

supposed  to  remain  in  his  employment  iintil  the  question  had 
been  passed  upon. 

It  is  possible,  for  example  (said  one  of  the  appeal  tribunals),  that  a  man 
employed  as  a  laborer  might  be  indisiiensabic  in  one  eslablishmeni  while 
his  services,  even  in  skilled  work,  might  be  of  minor  importance,  from  a 
national  point  of  view,  in  another  establishment.  The  question  is,  where 
can  he  render  best  service  ?  i 


Although  the  possibility  of  appealing  their  cases  to  the  muni- 
tions tribunals  enabled  the  workmen  to  secure  their  "  leaving 
certificates  "  on  reasonable  grounds,  the  delays  in  such  appeals 
and  other  causes  for  complaint  l»d  Parliament  in  the  amendment 
of  the  Mtmition,  Act,  dated  August  21.  11)17,  to  give  to  the 
Minister  of  Mi:  'nns  power  to  repeal  the  provision  of  the  act 
relating  to  "  leavir.,;  certificates  "  upon  his  being  satisfied  that 
this  could  be  done  consistently  with  the  national  interests. 
In  the  event  such  section  was  repealed  certain  "alternative 
provisions  are  to  have  effect,  prohibiting  the  employment  of  the 
workmen  concerned  on  work  other  than  certain  munitions  work, 
except  with  the  consent  of  the  minister  and.  subject  to  certain 
exceptions,  a  contract  of  service  between  an  employer,  and  a 
workman  employed  on  or  in  connection  with  munitions  work  is 
not  to  be  determinable  by  either  party  except  by  a  week's  notice 
or  on  payment  of  a  sum  equal  to  an  average  week's  wages  under 
the  co-tract."" 

Acting  in  accordance  with  this  amendment,  the  government 
issued  an  order  abolishing  leaving  certificates  on  and  after  Octo- 
ber 15,  1917.  Workmen  may  now  leave  their  places  of  employ- 
ment to  engage  on  war  work  elsewhere  on  giving  a  week's  notice 
or  such  other  notice  as  is  requited  by  their  contract. 

A  return  to  the  war  munitions  volunteers  scheme  accompanies 
this  abolition  and  the  scheme  has  been  extended  to  all  men 
eligible  to  enroll,  not  as  hitherto  limited  to  those  in  certain  trades 
and  engaged  on  certain  classes  of  work.    The  National  Advisory 


McGillivray,    1916,    Scot.   App.   Rep,, 


^  Scottish   Tube    Company,   Ltd. 
p.  19.    Fyfe,  o/>.  cil..  p.  19. 

.;r,c!,'™t'i.'ir'pp''/6i-26?  ""•  ""■  '■ ' """  '■ ""'""  '"^"'-'  ^- 


■"en  nut  to  Chan  J  .1':'.'^  ^PP^"^^'  of  this  p,a„  by  „„,„,         / 


105 


Esirf  ■--'*.- J*  "=;  t  i7 

""'"se  to  alJovv  men  ,M,   ,      °^  •""■"lions   that  ,'  '° 

enlist.    Acmr^i-    7  "*''  '"  'he  nrorf„n.;         1        '''""'<'   be 

"sentiaArtf  •:'"'^"  ^^""^  "-e  en^e"    ?  "' .'""""-'"'  'o 

'-"^  °'"er.:;r  r;  :;r^  ^"°-^  --S' :;;: -^  -"e. 

3  reahMlion  of  ,h./"  '°'"'  months   ih/.  ^  ^'  ™™ 

regards  „a        '"  ^™'"''   '^e  <ern„  of  7-  '"'"'"  """'"ons 

a-  tht  s:r;:r '"^  ^"----'"l  , ::;  -p'o.v-nt.  a: 

"■■y-ng  from  2s.  «r,o  "j    ""'   '^^   ^"PP'emental   a  M     "  '" 
^Tf™To?T-i'-.....  '"'"^''-P'">™en.dur,-n, 


^™™"'' ARM.  V.  land  2 


Fyfe 


"'■  "■'..  pp.  19J-19S. 


106 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


the  war  or  "  for  so  long  as  is  required  by  the  Minister,"  and  the 
agreement  includes  the  following  clause : 

1  understand  that  I  am  liable  to  return  to  military  service  at  any  time 
that  I  cease  to  be  employed  by  any  firm  named  by  the  Minister  of  Munitions, 
or  if  I  am  ordered  to  report  myself  for  service  with  the  colors  by  the  com- 
petent military  authority.' 

Since  November,  lUlC,  the  army  reserve  munition  workers 
have  included  not  only  men  released  from  the  colors  but  men 
who  have  enlisted  and  who  are  unfit  for  military  sei^ice.  These 
men  on  being  sent  to  the  factories  frequently  make  it  possible  to 
release  for  military  service  men  employed  therein.  By  February 
23,  lltl7,  over  12,000  men  had  started  work  under  this  plan 
and  more  than  half  of  them  were  substitutes  for  men  who  had 
entered  the  service. 

Munitions  Tribunals 


The  munitions  tribunals  to  which  reference  has  several  times 
been  made  are  of  two  classes,  which  the  act  designates  as  first 
class  and  second  class,  but  which  are  usually  called  "  general " 
and  "  local  "  tribunals.' 

The  United  Kingdom  has  been  divided  into  10  divisions — 7 
in  England,  1  in  Scotland  and  2  in  Ireland — in  each  of  which  a 
general  tribunal  has  been  set  up.  Each  division  has  in  turn  been 
divided  into  districts,  each  of  which  has  its  local  tribunal. 

The  general  munitions  tribunals  deal  with  the  more  important 
offenses  under  the  acts.  These  are,  generally  speaking,  of  two 
classes : 

(a)  Offenses  arising  in  connection  with  trade  disputes — i.e.,  offenses  under 
Fart  I  of  the  act  of  1915,  and  (b)  all  other  offenses  under  the  acts  outside 
the  scope  of  local  munitions  tribunals. 

The  offenses  arising  in  connection  with  trade  disputes  are  of 
three  kinds: 

1  Terms  of  Agreement,  A.R.M.V.  1  and  2.    Fyfe,  op  cil.,  pp.  193-195. 
'Munitions  of  War  Act,  1915,  sec.  IS.    Amendment  Act,  1916,  sec.  18. 
Fyfe,  pp.  50-51,  77-78,  Appendix  4,  pp.  110-144. 


THE    MUmxiONS  OF    WAR  ACTS  ,07 

Board  of  Trade  and  unless  three  week,  h"f""       '  '=""  "P""^"  "»  the 

had  left  his  ™p,oy™e„/;lt,  a    '  If-  "''  '"'-  '^'""^  -'"' 
not  be  employed  within  a  p  noj  of  ,  'l  ""'""'^  "  'l^""''' 

h-s  place  of  work;  (2)    f.^    °  T""'  ^""  ^'  ''^'1  'eft 

g.ve„  by  the  A  ,i„er  as  to  t  ,a'e  T"'  '"'u  '"''  "''^^''""^ 
cond.t.onsof  employment  of  worn!  ^^'''  ''"""  "'  '"^or  or 

skilled  men;  and  (3)w^^  J"™"  ""';''"'  "^""skilled  or  semi- 
appointed  by  'he  Mini  e  oft^n:;  °f  ™---  "'  ^"  "'^^P-'- 
power  or  failure  to  give  inform!!  '"  ""^  '''^"''''  of  his 

quired  by  the  inspector'    ■"^°™^"''"  °^  P^^uce  documents  re- 

p<aSS':;::r;:i^r,t:™'^-'^'')- 

to  comply  with,  regulation  made  '^""'[f™""™  °f'  °^  failed 
lishments  in  which'he  e^er  a„  emn  "'"'  '"  ™"'^°"^''  -'^l'- 
b-aches  by  war  munitions  volu^teTrrtr'^  ^T'^^'^' ^  '"^ 
work  ,n  a  controlled  establishment  7)1  "'^.""''"•aking  to 
•nan  that  he  has  been  dismissal'  ^■^{"'"P'a'"'^  by  a  work- 
reasonable  cause;  (4)  breaches  bv  an?  ,"  ^P'^^"^"'  without 
'o  employ  a  person  .em^  y'^sTd' r^""' """^«="''"^ 
service  or  a  war  munitions  voL   er  on  "'™'  "'  ""■'"^^ 

"ated  by  the  Minister  of  Mum-tion  TsTc'  f'  °'  '''"''  "^^'> 
'hat  an  employer  had  unreasonaWv  rlf  T"""'' '''  '^"^''"'an 
a  certificate  that  the  workman  ^"r''  "'  "^«'-'-'  <°  '-ue 
"-ent;  (6)  complaints  by  workmLTh  ..T'''  "'^^  ""P^°y 
w.thou,  a  week's  notice  or Tw  hoTthe  ''  ''"'"  '''^""-^'i 

of  notice;  and  (7)  breache,  h"         ,  ''^^"  '"  '^  s'"""  '"  "eu 
abrogated,  relatLg\o  "tX^fc" '  ^  '''  ™'^^  '""^ 

.     '  MlinitlOns    of    War    A^»»     tn.c  . 

'  /Afrf.,  p.  3. 


108 


BRITISH    LABOR    CONDITIONS    AND   LEGISLATION 


The  general  and  the  local  tribunals  are  constituted  in  the  same 
way.  There  is  a  chairman,  appointed  by  the  Minister  of  Muni- 
tions or  by  the  Admiralty,  and  two  or  mole  asse:  ^rs,  one-half 
chosen  by  the  Minister  from  a  panel  of  employers  or  their  repre- 
sentatives and  the  other  half  chosen  by  the  Minister  from  a  panel 
of  workmen  or  their  representatives.'  Chairmen  of  general 
tribunals  are  usually  barristers  or  solicitors  and  of  local  tribunals 
are  usually  chairmen  of  courts  of  referees  under  the  National 
Insurance  .\ct. 

The  amended  act  (1916)  gives  a  right  of  appeal  from  a  deci- 
sion of  either  a  general  or  a  local  munitions  tribunal  to  a  judge  of 
the  highest  law  courts  in  cases  which  involve  "  a  question  of 
law  or  a  question  of  mixed  law  and  fact  "  or  on  any  other 
ground  sanctioned  by  rules  of  procedure. 

The  amended  act  (11)16)  also  provides  that  in  the  munitions 
tribunal  the  chairman,  before  giving  his  decision,  shall  consult 
with  the  assessors  and  in  all  cases  where  they  are  agreed  he  shall 
in  his  decision  give  effect  to  their  opinion,  except  in  questions 
which  appear  to  him  to  be  questions  of  law.  It  is  further  pro- 
vided that,  in  cases  affecting  female  labor,  at  least  one  of  the 
assessors  representing  the  workers  shall  be  a  woman.' 

The  penalties  provided  by  the  act  for  failure  on  the  part  of 
workmen  to  comply  with  the  ordeis  of  the  Minister,  and  which 
the  munitions  tribunals  alone  were  empowered  to  impose,  no 
longer  include  imprisonment.'  Moderate  fines  may  be  imposed 
and  in  case  they  are  not  paid  the  munitions  tribunal  has  the 
power  to  order  the  employer  of  the  penalized  workman  to  deduct 
the  fine  in  instalments  from  the  wages  of  the  workman  and  to 
give  an  accounting  for  such  deductions.'  Imprisonment  may  be 
the  penalty  imposed  by  the  criminal  courts,  however,  for  tamper- 


1916, 


fe,  op.  til.,  pp.  51,  77-78. 
sec.  18  (3).     ~  ' 


Fyfe,  op.  cil., 


^  Munitions  of  War  Act,  1915,  sec.  15. 

^  Munitions  of  War  Amendment  Act, 
p.  79. 

3  Imprisonment  was  inflicted  for  nonpayment  of  a  fine  by  a  general 
tribunal  in  Scotland  early  in  1915,  but  the  decision  created  great  ill  feeling 
among  laborers.  Ihe  imprisoned  man  was  released  by  order  of  the  Minister 
before  completing  his  term  and  when  the  act  was  amended  the  power  to 
imprison  was  taken  away  from  the  tribunal. 

♦Munitions  of  War  Act,  1915,  sec.  IS  (4).    Fyfe,  p.  80. 


THE   MUNITIONS   OF    WA«   ACTS  jofl 

criminal  courts  for  erantino-  f.,1  r       P'°'«""°n  '"  '-he 

leaving  certificates,  gfr^    ale       „™  1  "'"■  '.^"""'"^  """ 
etc."  ^        '^  -n  formation  to  the  government. 

Prohibition  of  Strikes 

".cerval  o  indu^ial  ne  "T"  °^  ""'"  '""""'"E  a  short 
.'Hings,  to  Pu'arTn^rsCglrrlr'.h'"™^  °'^^^ 
^Smeiir^r™""^"""  '^  -  --- 

c.ifferencehas3r^t:j:rzr7:f ;:::'  ^  r-''^'^' 

one  days  have  elapsed  without  the  Boa  d  o  Trf,  .'"  '"■'"'^■ 
steps  to  secure  a  settlement  in  wa/s  proved  hy.ht:-""^  '''"" 

opL^aTrhrBoarTl'ft  T: ;'°'"'  '''''-"  "'-  ^-« 
ences  when  thlv  have  he!        f      '  /°'"  ''"''"^  '"'''■""=''  '"ffer 

purpose  of^:c:;i„';:i:l^'' "  '"^  '^™^''  °^  -^^^"^  ^- 

difference "«        "^  ''™'"°''  "  ^"=«'^"'™'  °f  the 

'''t^3rs:^ir:s;i;:tr°-™-'-^ 

™e„t  hetweenempe/:-  ■-::--;- 

J  {Wrf..  pp.  4.1-48. 
'ons  ascribed  to  the  Bn^M  ^f  tII^'^'^'^X  "f.  '-^bor  it  pe 


Fyfe, 


tions  ascribed  to  tlie  RnarA  ^'f  t-"  j"  ■     "'. '. - 

^Munition,  „(  War^A?  ,",",  S^^^IV"  't,.'"'"^' 
ins  of  War  A^,   10=   /i'  ,■  ,&''-_''-.61. 


performs  the  func- 
™m..,.,u„s  or  war  Act,  1915   =er   ?     p.  >  --'''^' 
•M„„,.,o„s  of  War  Ac',  ml  r/.'  f  ( J{%J,e'.' ,p.  j,.^ 


110 


BRITISH    LABOR   CONDITIONS   AND  LEGISLATION 


refer  the  difference  "  for  settlement  in  accord.-  ■  with 
thuite  means,"  and  if  the  settlement  is  unduly  delayed,  it 
may  annul  the  reference  and  substitute  any  of  the  other 
means.' 

(3)  The  lioard  of  Trade  may  refer  the  difference  to  the  Com- 
mittee on  Production,  this  being  the  same  committee  which 
was  appointed  by  the  gjvernment  on  February  4,  1015. 

(4)  The  Board  of  Trade  ma\  refer  the  difference  to  a  single 
arbitratiir  selected  by  the  jiarties  to  the  difference,  or  if 
they  fail  to  agree,  by  the  Board  of  Trade. 

(5)  The  Board  of  Trade  may  refer  the  difference  to  "  a  court 
of  arbitration  consisting  of  an  equal  number  of  persons 
representing  -employers  and  persons  representing  workmen 
with  a  chairman  appointed  by  the  Board  of  Trade."  ^ 

(6)  The  Minister  of  Munitions  may  constitute  a  special  class 
of  arbitration  tribunals  to  deal  with  differences  relating  to 
the  wages  and  working  conditions  of  female  workers 
employed  on  munitions  work  or  those  involving  semi- 
skilled and  unskilled  workers  employed  on  munitions  work 
in  contrtjlled  establishments  and  the  Board  of  Trade  may 
refer  any  such  differences  for  settlement  to  these  tri- 
bunals. The  Minister  may  also  ask  these  tribunals  for 
advice  *'  as  to  what  directions  are  to  be  given  by  him  " 
in  regard  to  these  classes  of  workers.  Whenever  the 
differences  relate  to  female  workers  the  tribunals  must 
include  in  their  membership  one  or  more  women.' 

The  arbitration  awards  are  not  subject  to  appeal,  are  binding 
on  all  parties  and  may  be  retrospective.*  A  failure  to  comply 
with  an  award  makes  the  guilty  party  liable  to  a  fine  not  exceed- 
ing £5  for  each  day  during  which  the  noncompliance  continues, 
and  (if  the  guilty  party  is  an  employer)  for  each  employe  in 
respect  of  whom  the  failure  to  comply  takes  place.'    The  same 

'Munitions  of  War  Act,  191S,  sec.  1  (2),  (3).    Fyfe,  at.  cil.,  pp.  59-60. 
'Munitions  of  War  .■\ct,  1915,  sec.  1  (2),  schedule  1.    Fyfe,  pp.  60-84. 
3  Munitions  of  War  Amendment  Act,  1916,  sees.  8,  6  and  7.    Fyfe,  pp.  35, 
60-61,  65,  72. 
*  Munitions  of  War  Act,  1915.  sec.  1   (4).    Fyfe,  p.  60. 
=  Munitions  of  War  Act,  1915,  sec.  14  (a).    Fyfe,  p.  76. 


THE    MUNITIONS    OF    WAR    ACTS 

penalties  apply  to  viM,,-  "' 

by  the  Munitions  Ac,'  bu  a  ,  .'"ffeT'  """^ '°  "'^P"'"  --red 
hours  of  woric,  or  otherwise  a  tott  "  ''  '°  "'"  °'  -«Ses, 
■ng  en,p,oy„,ent  on  or  in  conn «.  „„  "  "  ''™'  ^^  "^"^'ct- 
subject  to  the  arbitration  provXs  of  TH\r""''''''''  ^'^'^  '  "'<' 
ornot  such  differences  have       uhed  il    ,  1"""'°""^''  -'-.her 

The  arbitration  provisions  ofZl  "  "'  '°<^''°"'^' 

■•-■  only  to  „,unitio';,s  w^  bu  ^^av  h"""T' ''"  "''  '"PP'-'^We 
"ecfon  with  any  work  of  an' Ti  """''' ''PP'''^'"''^  "'"  con- 
apphcable  by  the  government  on'"  "  '"  "^'=>'  '^^  •"-!» 
or  continuance  of  the  difference  i, IT" V'""  "'^  "■•«^''« 
supply  of  munitions.'  I,  was  under  h'  '°  ^"  P^^J"*"aI  to  a 
'bat  the  government  acted  when  if ''' '""r"^  "'  ""»  -"^on 
rafon  provisions  of  the  Munition  I""""''  '"  "PP'>-  'b^  arbi- 
Welsh  coal  miners.  -''""'"ons  Act  to  the  strike  of  the 

To  say  that  all  difFerenr^c  ;„ 
workers  employed  en r,:;  „  "sZ k^r^e  "T'  """"•  ^'^  "^ 
.  iney  are  immediate  y  referred  t.,  ,u\,  differences 

by  them  referred  to  one  of  the  a'enci-  -""  "'  '^"'''^  '°  ''^ 
For  when  a  difference  arises  in  a  .'  m,""  f  ^"'"8  a  settlement. 
«gards  the  emplovment  o  emat  i-"'  ^^''blishment  or  a 
be  asked  is  as  to  whether  any  pTtsl^ch  "'  "'^  '"'  ''""'-  'o 
has  been  submitted  to  the  Mfnfs  efof  M  T  '"  ^™^^^  "^  bours 
It  .s  only  when  the  Minister  ha  withhe^l  K  ""'  ^°'  '"'^  "PP'oval. 
t>on  of  the  matter  is  called  for  The  V-  '""''"'  "^^'  ^^bitra- 
we  have  already  observed   refer  th  "'"  "'='^'  however,  as 

;Mu„;,j„„,  ,,  w,^  ■     •  ^"""•"'-'  Ac,  ,916.  ,„.  ,.    p 


isi^ 


I'' 

III 


112  BBITISH    LABOR    CONDITIONS   AND   LEGISLATION 

Trade  (Minister  of  Labor),  the  amending  act  of  1!)17  provided 
that  the  Minister  of  Labor  might  make  regulations  with  respect 
to  the  reporting  of  differences  with  a  view  to  preventing  undue 
delay  in  negotiating  for  the  settlement  of  such  differences.' 

The  act  of  1D17  also  provides  that  no  workman  employed  on 

or  in  connection  with  munition  work  may  be  discharged  on  the 

ground  that  he  has  joined  or  is  a  member  of  a  trade  union  or  that 

he  has  taken  part  in  any  trade  dispute.' 

>  Munition!  of  War  Act,  1917.  sec.  6.    BnlUh  laduslrial  Experiencl.  vol. 

'""Munitioni  of  War  Act,  1917,  sec.  9.    Lac.  ,i(..  pp.  263-264. 


CHAPTER  VI 
The  Supply  and  Di^ribution  of  L,bor 

on  munitions  work  and  ,o  s,l2  .h*^"'  °'  ^"'P'"^'^  '"m^d 
war  supplies  by  both  governmTn  'V„  •'""'"™  P^^^^^tion  of 
accomplish  these  ends  the  securing  f "™"  ^^'^Wishmems,  To 
-  .he  most  i„p„„3„.  airr;.!^: -;j^;'--  '^^^  -PP'r 

Shoktaoe  or  L.BOH  E.k.v  ,.  ,„,  vV.k 

*e  engineering  trades,  upon  which    h^  '""  "P^'''^"^  *" 

Erectly  dependent  for  its  Lplfe  ^  '"'  ^''^•""'"en.  was  most 
been  allowed  to  proceed  unche  led  n^h"  ""  '^^""'""g  '■^'' 
0  hers,  with  the  result  that  eret  '  in"/"''^'  ^'  "^"  -  - 
withdrawn  from  the  army  to  rpnufh  ''"'''"^  ''^'^  '°  be 

by  the  shortage  of  labor  in  en 7ne  '  "hr  T""'  """  "-"" 
ehange  m  conditions  afrectinl.h?M  ''"""''•    The  rapid 

•--'f  of  191.5  is  well  reflect  filh'r  '"""'''  """"^  ""=  «"' 
"'arlce,  which  are  given  eah"..  ""'"'  "^  "'^  '^bor 
i"*™.-  (7a^<.«<..       ^         '^*  '"""'h  ■"  the  Board  of  Trade 

In  January,  1915    ^.      ,, 
depressed.     Only  .h;sXter^:^''^.'"r  '""^^  --  ^'ni 
An.ed  forces -Vere  unusual;  b:;;::'';:''  equipment  of  the 
there  was  a  shortage  of  skilleVi!!  ,     """^  "'  'bese  trades 

work  and  partly  to^enl   tme  t'.  'T„T/  "V.*'"^  '"  P^-"-e  o 
^-^e  of  n,ale  labor  in  manv7n"^stries  esf  "^,    ■''"  "'"  ^  ^'^-t- 
■i".6»»r  c««„,  ,„s,  p,  3;.  ""•  "P^^'^"y '"  engineering  and 

118 


114  DRITISII    LABOR    CONUITIONS    AND    LEGISLATION 

shipbuilding,  coal  mining  anil  agriculture,  and  of  female  later 
in  some  branches  of  the  clothing  trade."  ' 

In  June  "  a  scarcity  of  male  labor  was  reported  by  nearly  all 
trades  owing  to  the  previously  existing  surplus  in  some  having 
been  absorbed  by  others  or  drawn  off  by  enlistments.  This 
shortage  is  now  extending  to  female  and  boy  labor  in  many 
<iccupalions."  ■' 

To  supply  this  deficiency  uf  male  labor  the  thoughts  of  employ- 
ers and  government  officials  turned  fir.st  to  the  possibility  of 
securing  labor,  especially  skilled  labor,  fr.jni  other  industries  and 
from  ether  district^^.  Xo  figures  arc  available  which  show  the 
full  extent  of  this  transference  of  labor,  most  of  which  doubtless 
took  place  during  the  first  year  of  the  war  on  the  mere  initiative 
of  the  workers,  who,  finding  their  services  in  greater  demand 
away  from  their  homes  or  in  other  industries  than  those  in  which 
they  were  cust  imarily  employed,  migrated  thither  in  search  of 
employment  and  better  wages. 


Transfers  of  Labor  through  the  Emplovment 
excha.nces 

Every  effort  was  rn^de  by  the  government  to  assist  in  this 
movement  through  the  labor  exchanges  in  so  far  as  it  related  to 
a  transference  from  other  industries  to  the  munitions  trades. 
From  the  records  of  the  exchanges  we  can  gain  some  idea  as  to 
the  extent  of  the  movement  from  one  exchange  district  to  another. 
There  are  in  the  United  Kingdom  about  400  public  labor  ex- 
changes or  employment  offices  in  each  of  which  registrations  are 
received  and  each  one  of  which  endeavors  to  fill  vacancies  in  its 
own  district  or  immediate  locality  or,  failing  in  this,  in  an  out- 
side district  by  cooperation  with  the  exchange  in  that  district. 

In  1013,  a  year  of  great  prosperity,  the  total  number  of 
vacancies  filled  by  all  exchanges  was  921,853.  Of  these  place- 
ments 110,902  or  12.-1  per  cent  were  in  exchange  districts  outside 
those  in  which  the  applicants  were  registered.     In  1914  the 

^Labour  Gaselte,  1915,  p.  115. 
"  Ibid.,  p.  195. 


THe  supply  D„TR,„,.., 

«<««lnun,hcrofv;,r=     •  '"°' """""'  Labor  „. 

""«  "  ma^e"  L  ?^-."-  '-''  P-acr    .^:    r;^'  ""■  'Change 
*«  war  peri,.,!  ■     n  ,  '"  """""•»  oi  the  v„    •  ''>■  ""« 

sons  for  whin,  ,      i       """^  and  c  ris  vpf  "  .u  ''  '*'f'"e 

that  2,.e  pe,  cen  Xe  n^r  '"■"'"'  ^'*  '■•.  J?'T  Th,'    '"" 

*"nsfe  r'd  ;; fo?^'^'""™  '"oX  pCe     The""""  ""'^'''^  '"^ 
a«*  ^isranceTravJ^I,"'""'''  ""*  ' '^ger     F^' r""""'""  "'  •"'" 
'<"  were  fr  ^   f  ,2  ^^  «"^'"  -"«     tTon^  ^^^■• 
Wot  all  the  ZZ  '^"'"•°"  of  the  ki„l  ""  """"'- 

se«n  to  have  h  '  '"'"  ""^«d  by  the  w 'r  k"*"  '"  """"'"•' 

^".r  Ga,,n,,  ,5,5,  ^^  ^_^j  "  "'  Prevent.nff  or  restrict- 

''*«..  1916,  p.  so. 


iin 


BKITIKil    I.AUOK   (:ONDITIO.\'.S   ANI>   LKUISLATION 


rl  ij 


injj  enlistmenls  tr<tm  the  industries  and  ijccupations  of  primary 
inipfirtancf  In  the  cmuluct  of  the  war.  As  already  ir.cntinned  the 
recriiiliti);  campaiKn  ha<l  pniccciled  withnut  refirence  I"  the  in- 
dustrial trainin);  ni  the  recruit-  nml  with  hut  little  ciinsidtration 
of  the  need  for  skilled  workers  in  those  trades  upon  which  the 
output  of  war  supplies  depended. 

The  necessity  of  maintaining  the  transportaliim  system  in  a 
state  of  high  efficiency  was  realized  at  the  very  lieKinninK  and  as 
early  as  Septemlier.  1!>H,  recruitinj;  officers  and  agencies  were 
instructed  liy  the  war  office  to  allow  no  rnilway  man  to  enlist 
"  unless  he  presents  a  written  statement  from  the  railway  com- 
pany who  einf)loys  him  to  the  efTrct  that  he  has  approached  the 
head  of  his  department  anrl  has  obtained  the  necessary  permis- 
sion to  enlist."  ' 

In  spite  of  these  restrictions  the  railways  were  under  steady 
pressure  from  the  military  authorities  and  from  the  employes 
themselves  to  allow  enlistments  and  they  complied  with  these 
requests,  whenever  possible,  l>y  employing  as  substitutes  for  men 
of  military  age  men  who  were  ineligible  for  military  service  and 
women.  By  the  middle  of  Octoljer,  1014,  .Iti.OOO  railway  men 
had  joined  the  colors  and  this  meant  nearly  ten  per  cent  of 
the  entire  railway  stafT  of  the  country.  By  June,  101(1.  the  ten 
larger  railway  systems  had  released  94,411  men  for  military  serv- 
ice and  this  constituted  from  15.1  to  22.2  per  cent  of  their  total 
staffs.  By  November  of  that  year  evidence  presented  to  the 
man  power  distribution  board  showed  that  nearly  140,000  men, 
or  about  23  per  cent  of  the  total  staff  at  the  outbreak  of  the  war 
and  over  50  per  cent  of  the  men  of  military  age  had  been  released 
for  the  army.' 

Among  coal  miners,  enlistments  were  especially  numerous 
during  the  early  months  of  the  war.  A  wave  of  enthusiasm  spread 
throughout  the  coal  mining  districts  following  the  invasion  of 
Belgium  and  this  stimulus  to  recruiting  was  contributed  to  by  the 
small  industrial  demand  for  coal  which  was  a  feature  of  the  early 
weeks  of  the  war.    By  February,  1915,  it  was  officially  estimated 

i  Leiand  Olds :  Railroad  Transportation,  Part  4  of  British  Industrial  Ex- 
pfricnce  during  the  War  (Senate  Document  No.  114,  65th  Cong..  1st  Ses3.), 
vol.  2,  p.  I1I9.  "  /Wd..  pp.  1120-1123. 


TME   .,n.p,.V   ^.vn  D..,TR,BlrT,O.V   or   LV,. 

"'«  approximately  1 07  ,00  ™  ■  ' '  ^ 

number  ha,J  j„i„ J ,he  ::Z,     The"  ,"'  «"'  ^'"'  "'  '"e  ,o,a, 

•"7  «'''::"«'i  in  son,,  o  te  mw 'r '™"r"''"«  «- 

'■ally  serious  in  their  effea,  -       •  '"''"  ""'  "P*" 

<l<pcn,lence  of  the  war  u  1  ,h      " f'  '"""^'  "'  ">«  <lir«, 
»«"<  re„uire,l  of  the  ^^.^Zj^'"  '""-'"«  »nd  the  degree  of 

>ra.les  an,l  the  percentage  whichTh^en,  ',''""""  '^'"^  variou, 
;-.«r  in  the  tra.e  ac''cor.i„;\f  .;"'::-:'; -;;;.;r. he  .0., 

Approximate  p- 

Tr.d.  and  I„d„„  t^J'V':''      Know"  ,o'h«v, 

f-'p?"""-* c^r''i°,'i   ^r'^'"° 

L«thcr  and  l„,|,„  ^^j, IM.ooo  '^7.«' 

"""I'"  ■""I  worsted  W.OOO  ," 

Boot  and  5ho,  I29.O00  ,, 

""""y .'.■ iw.ooo  li 

'ronandilMl  18,000  „ 

l"^  .:: 311.000  Ji 

J'»""'"'"»    315,000  ,,! 

Coal"ndoth.rmm„   ..;. 44,000  ,A 

b""""8    1,164,000  ,,; 

P"ptr  and  printing   . .         235.000  ,,, 

!;'"m.  jute  and  hemp         240.000  ,,; 

^°"r 42.000       Hi 

Lyt-le.  motor  carriage  and  wa^ni,' k  ■•;:•■ ^59.000  „" 

Ch."".  pottery  and  gla„  .    "°"  """-""^ 202.000  „' * 

°"''''."'«    8J.0OO  ,, 

F"rn,t„ro  and  upholstery   1.023.000  ,,; 

Bnck.  cement,  etc.   . ,         141.000  ff 

'^'"  Pl""'    78.000  ,js 

.  'W.  J.  Lauclt- r„„;  J,.   ■     ^.'•000  «. 


;  >  I' 


118 


BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 


11 


The  fight  at  Neuve  Chapelle  aroused  Grea:  Britain  to  a  realiza- 
tion of  the  fact  that  the  success  of  the  war  was  as  much  dependent 
upon  a  plentiful  supply  of  munitions  as  upon  a  supply  of  fight- 
ing men  and  it  then  became  evident  that  a  mistake  had  been  made 
in  permitting  enlistments  of  skilled  workers  from  certain  trades. 
As  already  mentioned,  this  mistake  was  remedied  to  a  certain 
extent  by  the  actual  withdrawal  from  the  army  of  skilled  workers 
in  the  engineering  trades.'  No  figures  are  available  which  show 
the  extent  to  which  men  were  withdrawh  from  the  army  for 
work  in  munitions  plants,  but  such  withdrawals  were  difficult  to 
make,  largely  because  of  the  opposition  of  the  military  authori- 
ties to  the  withdrawal  of  men  whose  superior  abilities  had  made 
them  especially  valuable  soldiers.  No  proper  register  of  the 
occupations  of  men  who  enlisted  had  been  made  at  the  time  of 
their  enlistment.  It  was  therefore  necessary  to  create  an  elabo- 
rate system  of  inspection  of  regiments  both  to  guard  against  the 
fraud  of  men  who  wished  to  escape  from  military  service,  by 
claiming  to  have  the  skill  needed  for  munitions  work,  and  to 
prevent  really  skilled  men  from  Ijeing  retained  in  the  army 
because  of  the  insistence  of  their  commanding  officers  when  such 
men  might  be  more  useful  in  the  manufacture  of  munitions. 
After  these  inspections  had  been  completed,  arrangements  were 
made  to  facilitate  the  release  of  skilled  workmen  for  whom  appli- 
cations had  been  received  from  the  firms  which  had  previously 
employed  them  and  which  were  engaged  in  the  manufacture 
of  munitions.  These  men  withdrawn  from  the  colors  remained 
liable  to  be  returned  to  military  service,  but  while  employed  in 
munitions  establishments  they  were  subject  to  the  same  law  as 
civilian  workmen  and  were  subject  to  military  discipline  only  in 
regard  to  such  matters  as  their  behavior  on  streets,  etc.  They 
received  the  same  wages  as  civilian  workmen,  performing  similar 
duties,  but  the  proviso  was  made  that  these  wages  were  to  be  not 
less  than  the  rate  of  army  pay  they  were  receiving  at  the  time  of 
their  release. 


*  British  Association  for  the  Advancement  of  Science,  sec.  F.  Draft 
Interim  Report  of  the  Conference  to  Investigate  into  Outlets  for  Labor 
after  the  War,  p.  6. 


Further  efforts  were  made  h    ,u  °"-^"'^  HD 

"'.stment  of  skiHed  ZXl  t  nI  '   T""''"'  '°  P-vent  the 
announced  that  an  interdep  r  ^^    "7  .f^   ^«'='  ""en  n  .a 
engaged  ,n  preparing  lists  of  rl     '.""■-'     ''"mittee  was 
'■ons  from  which  enlittmen.rshou  '"™"""^'-  '--  «cupa 

possible,  and  employers  in  these  (rJ  '  '  "^'^  ^^  far  as 
recommendations  t„  the  .secre tarv  o  Th  ""'  ''""*"'  '^  ^ake 
ence  to  mdispensable  and  irrenlLable  .""""'"^^  " -'"'  -fer! 
schedule  of  indispensable     "'^^"^'''^  classes  „f  labor  "  ■    Thi. 

,^a^.es  to  munitioL  v:;u:t:::r  M^.T^^r"  "-^  ^-'™  °f 

<^''«cS:i:t«-,r^:-"-Ht  .0.01.  their  labor 
^orkmg  their  existing  force    „vl       '™i'  '"  P'"'™'^^'  "as  by 
cumstances  which  favored  thrrr'    ^'."^  "^^^  —1  cir- 
sp.nt  of  patriotism  and  anxous  to  hi  '7'°^"  ^""'  ^''h  'he 
w.n  the  war  entered  little  obiection   ,    ^  ^'  "^  ''"  "-e  trenche 
working  long  hours.    Higher  raes'r'V'"^  ^^"^'^  -""'hs  to 
contnbuted  .0  their  willingness  to  voJ"''    "  """'"^  "^'-'"'y 
*he  h,gher  earnings   secured  irthisV  "  ""^  """""?  ""til 
necessary  by  the  increased  co  t  of    i      "^  ''"'  "^'"^"^  "ade 
other  hand,  were  not  reluctam  to  .,  T^u-  '^'"P'oyers.  on  the 
fme  because  the  terms  of  thei    conf     f  '""''"  ^^''^'^  ^"^  "ver! 
easdy  made  this  possible.     Fu  ,h  r"  ""''  ""^  government 

was  concerned  there  was  no  i!  ,'■,"'  '"  ^^  skilled  labor 
wh.ch  to  draw  and  even  he  e™,^""'^  '''""''^  -PP'v  on 
depleted  by  enlistments.  Over  ,t^l  ,^  '"""'■^  "^"^  ''^'"S  '  feadily 
first  .n  those  trades  work,";"  TcU  oT  "'  '"""'^  "'^  ™'e.  t 
later  m  other  trades  as  well  ^  °"  government  orders,  but 

from  the  act.  by  order  mad    by  hi'      "  J™"*^^"'-^  'o  e.xempi 

■n  respect  to  work  which  is  undertake'n    ''  k\""^  "'  workshop 

■i".»...  Co...,,.,  ,„;  „  3,,   """'"="''"  o"  behalf  of  the  Crown 


120 


BRITISH    LABOR    tO.NUlTIONS    AXU    LEGISLATION 


The  question  now  arose  as  to  how  much  latitude  should  be  given 
to  employers  to  work  the  protected  classes  long  hours  under  the 
provisions  of  this  exemption.  It  was  generally  held  that  over- 
time work  was  necessar) ,  especially  in  the  munitions  trades,  and 
those  who  deplored  the  necessity  comforted  themselves  with  the 
thought  that  the  war  would  lie  a  short  one.  During  the  year  19 L"i 
the  authority  to  suspend  the  h'actories  Act  was  extended  by 
clause  t'lA  of  the  Defense  of  the  Realm  Reguhuions  to  "  any 
factory  or  worksho)i  in  which  the  Secretary  of  State  is  satisfied 
that  liy  reason  of  the  loss  of  men  through  enlistment  or  trans- 
ference in  government  service,  or  cjf  other  circum.lances  arising 
out  of  the  present  war,  exemption  is  necessary  to  secure  the  carry- 
ing on  of  work  required  in  the  national  interests."  ' 

.\pplications  to  work  overtime  began  to  pour  in  on  the  l-"acto- 
ries  Department  from  all  over  the  kingdom  as  soon  as  government 
orders  liegan  to  he  placed  and  such  applications  have  continued 
tfi  be  made  throughout  the  war,  although,  perhaps.  lately  with  less 
frequency.  The  earliest  trades  to  he  affected  were  those  directly 
concerned  with  the  manufacture  of  munitions.  Next  came  the 
cknianil  from  the  woolen  trades,  from  hosiery  factories  and  from 
the  clothing  trades,  especially  those  engaged  in  the  iianufacture 
of  armv  clothing  and  of  boots  and  shoes.  Other  .applications 
were  received  from  those  trades  manufacturing  surgical  dress- 
ings, metal  accessories,  such  as  buckles,  spurs,  bits  and  horse- 
shoes, and  from  a  large  number  cjf  miscellaneous  trades. 

The  department's  method  of  handling  the  problem  was  to  make 
temporary  orders  fiermitting  overtime,  not  to  exceed  two  hcjurs  a 
day,  on  not  more  than  five  days  a  week.  Additional  hours  were 
permitted  in  the  munitions  trades.  In  these  trades  the  hours  of 
laiior  oftentimes  extended  to  fourteen  or  fifteen  per  day  and 
Sunday  labor  and  night  work  were  usual.  Between  August  4, 
lUM,  and  February  lU,  191.5,  not  less  than  3,141  orders  were 
granted  jiermitting  overtime  work  for  women  and  young  per- 
sons to  whom  alone  the  Factories  Act  applies.  Of  this  numlier 
748  were  in  the  woolen  manufacture.  231  in  the  hosiery  manufac- 
ture, ."il4  in  the  manufacture  of  uniforms,  245  in  the  manufacture 
'  Annual  Report  of  Chief  Inspector  of  Factories  and  Workshops,  1915,  p.  5. 


THE   SL'PPLV    ^     r^ 

.^«'-s    .n   the  „a»er  n^d^  '  "^""  "' "-^  'aoorv  in- 
™l"-ess,„n  prevailal  in  m,  ""'  """'''<.■>■  "f  li.,nr.    .u 

"'--riSrS-':-™" -'--' 

-"^  ■'  seems  ,„  have  l.en  ,he    i^   f  "''  "'"  "^■^'  ^---  -'      <^ 

-;  ■m>cl,  ,.ver,in,c.as  ,he  „,  1       /        T'  "'•""""■•'^'"rer.s  ,„  ,,,    , 
'\'  ""•■  linu.  ,l,e  Health        V  ""''•'"■^"-^■"'illi„,M,, 

'"■l^-  emplnved  for  77  U.,.:^' ^^      '"'""  '"'"  ^^'^  -">  -.  - 

Requests  for  permissi,,,,,,,;,' 
hrou^hom  l.„S,  b„,  the  Chief  L      ,     '''!  '""'"'""^  ""^''«'ed 
fact  that  there  was  "a  m-;rL         "''"■""■  "f  ''Vtories  notes  th. 

""«'""  to  work  on  Sut^da  "  ""'"^■^'  ''''''  "^"^"''^  fo  pe  " 
-"fine,,  to  cases  whe;  '  , /^  :„7  --'>■  -"ive,,  aniTrJ 
-"^e  or  the  processes  are  r  '  ;„,  ^  """Pe««,  emerjrcncie! 
afternoon  nor.  have  also  l^.  ,  ,  t's'  '"'""'^  ^^  '^"'•r'  v 
:::^.^-^e,enera,reco.i.ion;f-:---e^^^  ' 

r-^"^r;^-?t:r^— ini.sa„ow. 
-  -  scheme  throughout  the  ^ir^^x^'e^::,'::::  ^^-^^ 


U2 


BRITISH    LABOR    CONDITIONS   AND   LEGISLATION 


incnt  of  hours  when  overtime  was  worked.  Different  -.ystcms 
were  adopted  in  different  localities  and  employers  seem  to  liave 
been  governed  chietiy  by  the  custom  of  the  district.  In  some 
instances  there  was  overtime  on  each  flay  of  the  week,  while  in 
other  places  overtime  was  worked  on  only  two  or  three  days. 
The  desire  of  the  workers  not  to  work  late  in  the  evening  had  led 
in  some  instances  to  a  long  spell  of  work  in  the  afternoon  without 
any  interval  for  the  evening  meal,  but  experience  seemed  to  indi- 
cate that  long  spells  of  work  without  interruption  did  not  lead  to 
high  output.  Accordingly,  the  department  established  the  rule 
that  for  the  protected  classes  of  laljnr  not  more  than  five  contin- 
uous hours  should  be  worked  in  textile  factories,  nor  more  than 
five  and  one-half  hours  in  nontextile  works,  and  that  even  these 
hours  might  not  i)e  worked  unless  tea  or  other  hot  refreshments 
were  available  in  the  rooms  for  the  workers  during  the  spell.  A 
break  of  a  quarter  of  an  hour  in  the  afternoon,  instead  of  a  half 
hour,  was  permitted  provided  (a)  that  the  working  spell  did  not 
exceed  six  hours;  (b)  that  a  whole  hour  was  allowed  for  dinner; 
and  (c)  that  the  inspectors  were  satisfied  that  adequate  arrange- 
ments had  been  made  for  serving  tea  to  workers  as  soon  as  they 
stopped  work.' 

In  munitions  estalilishments  the  demand  for  overtime  work 
was  more  urgent  than  elsewhere  and  permission  to  work  over- 
time was  granted  with  less  reluctance.  We  have  already  noted 
the  wider  latitude  given  employers  in  these  trades.  After  six 
months'  experience  with  such  work  the  department  issued  a  gen- 
eral order  applicable  only  to  munitions  establishments  and  which 
provided  for  overtime  work  in  accordance  with  any  one  of  three 
schemes. 


1.  Ovortime  with  a  limit  of  five  hours  per  week  for  women,  boys  between 
14  and  16  and  girU  between  16  and  Ki  years  of  age,  and  of  7'/j  hours  for 
boys  over  16  years  and  also  (in  a  few  cases  of  special  urgency)   for  women. 

2.  Day  and  night  shifts  for  women  and  tioys  over  16  years,  and  in  certain 
cases  for  hoys  14  years  of  age. 

3.  Eight  hour  shifts  for  women,  girls  over  1'.  and  boys  over  14  years  of 
age. 

'  Annual  Report  of  the  Chief  Inspector  of  Factories  and  Workshops,  1915, 


»n,ewha.  in  advance  of  ha  t  e";:  h^"  """"''"  --'™e 
=^=  early  as  Vnr,.  however   it  ha,  t-  ''"'"' ""''''    f^™" 

'-'■net  tendency  towards '  a  .e,,^;"  ""t"  "^'  "^""^  -'  » 
plants  as  well  as  elsewhere.  Sun dlTw  ??"'"  '"  "'"""'""s 
^pec,a-^o„ecti„nah,e.  Notttha  ^e  H  ah? /T'' '" '^^ 
workers  Committee  recommended  th^  ,i       ,  '  '^""i""ns 

«'"rk  hut  the  Ministry  of  M  m  t^'.  u  r",''""™"'  "'  ^""''ay 
^plovers   that   they  ^ahsta  n   "vh  r  "  recommended  to 

work,  especially  whe're  overtime  wr"."';-^?"^    '^"-    •'^""''■'v 
During  the  year  ,«,«, he  CWerL.'''"""'^''''^-'^el<,-  ' 
ha«  '■een  a  notaWe  decrease  i^  //'""'  "P°'''"'  "'■"  "  there 
that  were  common  i.  the  e'lv       "  u''""'"'  '"'  "'^  '""?  h"U 
'-ler>cy  has  heen  to    estr       t^e""    V;'  '^  "•^^-    ^'"='-- 
amount  very  little,  if  at  a,'     tlT'l""''  "'  ''"''  '"  - 
Factories  Act,  and  to  arrange^o    m„   ^T  ^""*^''  •""'"  the 
Im.ts.  ^"S^  <"<■  more  elasticity  in  ,he  daily 

r^'^'^'^r;^'^ii:^::jT'-  --' '-  '^^  -chme 

allowed,  in  other  cases  overtit^e  w'  "  ""'"'  "'  ""^  "™«™e 

-ted  that  in  those  cases  wh  "  Je"  ,T, '"';™'"-'-    "  was 

o  meet  sudden  emergencies,  advant  '      f ,"    "L"""  «'•-'«' 

the  permission  granted  in  every  case  n        "°'  '^'^"  '^l"^"  -f 

•hatexces.sivehr„r  o  ,;Wa:,l  s"'d"''  "  '"''"  '"  '^  -'-d 
A'though  the  Minister  of  Mu'lt"  !^i '''"'  "'^^^  ™"--"'e 
restnc,  the  hours  for  men  worke  "  re  ""  "'"'•"'^  P^^er  to 
by  h-m  that  moderation  be  shown  in   h  """"■'  ""''  "^''^ 

t-y  the  end  of  the  second  yea    oHhe^t^T'T  °[  "^""'"^  -'l 
-e.ny  discontinued  in  controllIlTcS^t;:^-;;^-- 
'  Annual  R^nort  «(  .l.  ,->  .  .  . 


..^  o.ui  tne  ftim- 
Annual  Report  of  the  Chi.f  r 

W..,„,,,         ^"""""'"°'^--'«-  Workshop,.,,,, 


p.  6. 
'/*«..  ,916,  p.  3, 


I!  i 


12.1  llKITISIl    LAHOK    CONDITIONS    ANU    LEGISLATION 

istry  was  emleavoring  to  get  it  iliscontinueil  thruuRhout  the 
country  on  the  grounil  that  it  hindered,  rather  than  facilitated, 
maximum  production. 

Appeals  for  Voluntary  Registrants  for  Munitions  Work 

Reluctance  to  use  the  compulsory  powers  of  the  grjvcrnment 
to  mobilize  the  industrial  forces  of  the  nation  even  in  war  times 
is  a  characteristic  (jf  Anglo-Saxon  countries,  and  English  experi- 
ence in  this  matter  is  in  sharp  contrast  with  that  of  the  conti- 
nental countries,  in  which  compulsion  for  civilian  as  well  as  mili- 
tary purposes  was  ad,<pted  with  little  hesitation  in  the  early 
months  of  the  war.  Although  there  was  during  the  early  months 
of  the  year  V.>\r,  much  talk  i"  England  of  "conscription  of 
labor."  apparently  intended  to  »erve  as  a  parallel  to,  and  an 
excuse  for,  conscription  for  military  purposes,  there  was  so 
much  objcct'ou  to  the  plan  among  the  working  classes  that  the 
government  found  it  desirable  to  disavow  any  such  intention ' 
in  making  its  appeal  for  the  passage  of  the  Munitions  of  War 

Act,  11)15.  , 

Instead  of  conscripting  men  and  women  for  industrial  pur- 
poses, the  government  has  sought  by  every  means  possible  to 
discover  the  extent  and  character  of  the  labor  supply  of  the 
United  Kingdom,  and  by  a  policy  of  classifying  the  trades  and 
restricting  the  entrance  of  labor  into  the  non-essential  ones  has 
left  it  little  alternative  but  to  enter  those  trades  and  industries 
which  have  been  deemed  essential  for  the  successful  prosecution 

of  the  war,  e      u 

The  first  step  in  this  direction  was  taken  in  March,  1915,  when 
the  President  of  the  Board  of  Trade  issued  an  appeal  to  the 
women  "who  are  prepared,  if  needed  to  take  paid  employment 
of  any  kind— industrial,  agricultural,  clerical,  etc— to  enter 
themselves  upon  the  register  of  women  for  war  service  which  is 
being  prepared  by  the  Board  of  Trade  labor  exchanges."  The 
object  of  registration  it  was  said  "is  to  f^nd  out  what  reserve 
force  of  women's  labor,  trained  or  untrained,  can  be  made  avail- 

iSee  ante,  p.  94, 


3uie,  If  reciuired       VV  -  "'' 

'"  their  „a>r,o,i,,„,      .";■'  T'"  "'^"V"  ^^8'^'"  ''r  'his  appeal 

service."  ■  '"'P  "  "'^"  f"-"  %htmg  does  nati„nal  „ar 

oppt;;:7;\:tgist'?:rrrtr:ic:  :;;"'^"  "■^"■•^'^'^^  ^-^  o^- 

■sm  of  the  women  was  fai  K  nr   r  ^  ""^  ""P-^^'  "-  <hepa.ri,„. 

-i<i..haveen,ol,e,,,;/hrlKs::;  T'"  "'™-  -- 
'"""^d.a,e  availal,ili,/„f  ,hi    Ln.fa ?    ""'f'    •'"''«"' '- the 

the.overn.ent^^i/Sj      -^^  ^>'  "^'^  -«--ion 

hose  trades  whose  relation  to  iJ',  '^'"""""  "' ™"  '""" 
■"•-ate.  In  June,  iZ^  M  47""  °' ""=  "'^^  ^^^'^  -'«' 
cooperation  with  the  National  Ad  ""^cl''''''''"^  """*>'  "' 
Unions  .nvited  "all  skilled  work  "  n  r""""=  "^ '^^ ''""'le 
buddrng  and  allied  trades  notZadv  ^"R'"eering,  ship. 

to  register  themselves  at  muni  ^  ^ '"^'^'^  °"  war  contracts  " 
purpose  at  some  400  place  t'rZ:"?  t""'^"  ""'"  <'-  'his 
Registration  rendered  I  man  ^t"  ran' f """'''  ''■"'^"'™- 
work  ,„  any  part  of  the  country  on  the  f  11  '"  government 

^       "'^  f"llowmg  conditions  ■ 

3    Tl..  c    .        .  "^        "  '■rasonable 

■«er  of  Atimitwns,  with  assessors   vnL,        """"r"^"  appointe.l  b„  ,t,,  ,,.   ' 


:mi 


i' » 


120 


BRITISH    LAnoR    CONDITIONS    AN1>    LEGISLATION 


I 


This  plan  of  voluntary  registration  had  iKen  adopted  by  the 
governmert  at  the  urgent  rcijuest  of  the  trade  unions  in  the 
engineering  and  shipbuilding  trades  while  the  Munition;,  liill 
was  under  consideration  in  the  House  of  Commons.  They  hoped 
to  show  that  voluntary  enlistment  was  sullicient  without  any 
degree  of  compulsion,  and  hoped  that  the  success  of  the  scheme 
would  be  such  that  the  government  would  abandon,  or  at  least 
materially  modify,  the  Munitions  Bill.' 

At  first  the  plan  seemed  likely  to  succeed.  Registration  began 
on  the  evening  of  Jime  24  and  4t'>.0()(l  men  enrolled  the  first 
week.  By  July  10  about  00.000  volunteers  were  registered. 
When  the  lists  were  carefully  inspected,  however,  it  was  seen 
that  four-fifths  of  the  volunteers  were  already  engaged  on 
government  work  and  that  dilution  of  labor  must  lie  resorted  to. 
The  government  found  the  plan  sufficiently  useful,  however,  to 
continue  it  and  made  a  place  for  it  in  the  Munitions  of  War  Act. 
191.''>.'  Those  who  register  under  this  plan  are  !  -chnically  known 
as  "  war  munitions  volunteers."  to  distinguish  them  fn-m  the 
army  reserve  munitions  workers  wlio  are  released  from  military 
service  to  work  in  trunitions  plants.  In  order  to  protect  these 
volunteers  from  insistent  appeals  from  recruiting  officers,  the 
act  provided  a  scheme  of  war  service  baiiges  to  be  worn  by  such 
workers  and  rules  were  drawn  up  by  the  Ministry  of  Munitions 
to  govern  the  use  of  these  badges  and  to  prevent  their  fraudu- 
lent transfer  to  other  workers.'  There  was  no  guarantee  that 
wearers  of  these  badges  would  be  exempt  from  military  service 
and  in  May,  1917,  it  became  necessary  to  withdraw  the  privileges 
conferred  by  these  badges  and  to  make  their  wearers  »Mbject  to 
the  military  service  acts. 


I!  I  m  ■. 


Compulsory  Registration  for  Industrial  Purposes 

The  government  next  undertook  to  secure  registration  on  a 
much  larger  scale.    On  July  15,  1915,  the  National  Registration 

*  H.  L.  Gray ;  tVar  Time  Contri}!  of  Industry,  p.  i2. 
2  Sec.  8.    Fyfe :  Employers  and  l^orkmen  under  the  Mttmtians  of  War 
Acts,  p.  72. 
>  Fyfe.  pp.  171.  174. 


I    i     :; 


THE    S,  PPLV    ANO    D,STR,aUr,ON    OF  tABOR  ,,, 

Act  was  passed,  which  provide,!  for  tho  r..-  .     ■ 

-ns,  male  and  female,  l^.ween   he  a«s  ,7 .   '",""  '.'  "'  *"  P"' 

(1)   VVhethcr  the  work  „„  „|,ich  u,  ,,. 

'2r«"ht  ^7  ^°""™^"'  *■'■-"- """""" " '"""°'"'  ■'  -'•"' 
^ei:p"jr;  ■: -s  i^r  ^-; ;.----  --  --  •^" 

mturc  ihercof.  "'  ""^  ""«  employed,  a„d,  ,(  j„   JJ^ 

oo!::;S'z';r 'Sr  ^  "^v"^^^"--  -^  -"^  ^-i 

an<l  .he  common  coun  ,  7t  vt""'"  "*'"'"''""  ^"""-'y 
pal  'troughs  and  of  ur  an  am  rur  I'r  T'"'""'''''"  ""''  •"""'-- 
^^^'or  .he  re,is.ra.io„:  ^!  ^^^^^^^  '"'''  "^'-"- 

'ocI^::r^::'XXnj:-'-ve.::en.  Board  .0  .he 
™por.ance  of  ^.a.in  X^a  w^^ :;,n:i7''''-^«<'  '"' 
cally  by  persons  having  .echnic-,1  Tn     T,  '  ""'■     "P^" 

workers  in  engineering  ^h^rn  ''"°"''^<'g=  "■■  skill,  such  as 
by  persons  ..I^^^^Su^-^  ""  "'""  "'^'="  '-<<«-  -« 

-lh^X"3ra;r.hr;rrcr:  'r^  -«'^-''°"  -•«- 

decision  of  .he  peopletlatheur  "  """"'"'  "" 

'he  kingdom  should  be  applied  tolht,  "r  ";''  *'""^"  P^^"  "* 
b".  al.hough  penahiesTe  Vr,  ^Vd"  '  ''^^''"^  ^"'"-y." ' 
neglec.ing.o  regis.er  and  o  fumTsh  1  n''f  '""°"  '''""'"^  °^ 
the  ac.  it  does  no.  appear  that  ?h     "'".'"f°™="'""  required  by 

--.-ghitw::ir;^:-----.ofthe 

I-.S..A.  EX.MP.0..  ..VO.  .„.  M..ARV  S.v.c.  A„s 

n..^:3^^-:r^X^rr^r^^--^T"-'n-He 

--. .....  ,,,,„„  .::::z::ti  '"' '-''' 


128  BKlTlSll    LABOR   CONDITIONS   AND   LEGISLATION 

r,i  the  war  "  every  unmarrie.l  ni;in  between  the  ages  of  IS  and  40, 
inclusive,  and  the  Amendment  Act  of  May  ;in,  U'lti,  made  con- 
scription applicable  to  "  every  male  British  subject  •'  witbin  the 
ages  mentioned.     Both  acts,  however,  provided  that  exceptions 
mlRht  be  granted  to  any  man  on  grounds  of  ill  health,  inhrmity 
cons,  .'ntious  objection  to  military  service,  exceptional  financia 
or  I    .iiiess  obliRations  or  domestic  p..sition.  or  •'  on  the  ground 
that  It  is  expedient  in  the  national  interests  that  he  should,  instead 
of  being  employed  in  military  service.  U  engaged  in  other  work 
in  which  lie  ishabituallv  engaged  or,  if  he  is  being  educated  nt 
trained  for  any  work,  that  he  should  continue  to  be  so  educated 
or  trained."     Exemptions  might  also  lie  granted  by  any  govern- 
ment departme.       .iter  consultation  with  the  army  council    to 
"men  who  are  employed  or  engaged  or  qualified  for  employ- 
ment or  engagement  in  any  worl<  which  is  certifie.l  by  the  depart- 
ment to  iK  work  of  nati.inal  importance  and  whose  exemption 
comes  within  tlie  sphere  of  the  department." 

Provision  was  made  for  the  repr:.  .-ration  of  labor,  wh.  ther 
organized  or  unorganized,  on  t.e  -.  itary  service  tribunals 
which  were  created  to  pass  on  the  <|uestion  ot  exemptions.  Ihe 
circular  of  instructions  issued  by  the  Local  Government  Board  to 
local  bodies  charged  with  the  selection  of  the  military  service 
tribunals  urged  these  tribunals  to  "  be  most  careful  to  avoid  the 
slightest  tendency  to  what  might  appear  to  be  industrial  com- 

pulsion."  *  .1. 

Armed  with  the  powers  of  military  conscription,  the  govern- 
ment has  been  in  a  measure  free  to  dispose  of  the  services  of  its 
male  population  of  military  age  in  whatever  way  it  has  seen  ht, 
whether  in  the  army,  the  navy  or  in  industry.  During  the  year 
lyifi,  the  need  of  men  for  the  '..ar  industries  appears  to  have 
been  felt  fully  as  keenly  as  the  need  for  fighting  men  and  a  liberal 
policy  of  exemptions  was  followed.  Taking  advantage  of  that 
provision  of  the  Military  Service  Act  wh  h  allowed  a  govern- 
ment department  to  grant  exemption,  after  consultation  with  the 
Army  Council,  to  men  engaged  in  work  of  national  importance 

.fln(«*  Industrial  Exteritnce  during  Ik,  War.  vol.  1.  p.  719. 


■?() 


wharves  ,,nd  waterwav;  •  ^       '  v    '  "T"""^'"-'^-  "'  1'""^.  'K'Ck, 

Ama,,ama..d.S,;cietvofrn.„u'rs  .  ""'""'■   "'"•■"''>    'he 

^.l-l'l  call  up  f„r  s^r^ice  »i.h  ;      "''"^  ""  """"'">!  -mccr 

a  •.ra„e  card  "  evidencing  his ll  ",    '■■  "'"''"""  """  ^'i 
■'Pecfied  ,rade  uni.,ns  of  !k  J  r"    "    "  "'/"'^-  ""'■  "f  '-'■^i" 

"en    for  mdilary  service.      Ro'h     hJ         '    !''  »•"■■■"'"»•'  ""•''  "f 
»g^eenu.n,and  i,.s  wi.hdrawa     a  sedl  '•'"■'"^■'^■'-  "'  'he 

•he  working  disfric.s  and  led  ,,r    '"',""'"'""  "'^"'"''''""' 
•he  eng,neer,nK  .rades  in  ,he  sprinV   f     ..-       '"  "^""""-"^  h, 

Although  .he  government  J^,,  ?;!'■• 
consistency  in  i,s  p„,icv  „f  T«J'  '^  Recharged  with  lack  of 
■•eason..  i,  ^^y  be  said  Iha  th;;"  ^  "l"'"'  '"'  '"""^'-»> 
he  pursuit  of  any  consistent  poicTwa  T'T  "■"'  "'^■''  'l^'^' 
'he  beginning  of  the  las,  quan  ' oM  .K  .H*''''  '""P"^'''"^'  % 
m,l,tary  service  had  becon,  so  urg  nt  ih^'  ""''  "'  """  ''^^ 
■'ary  to  release  for  military  servic  ,  ""'  '''"■^e.l  neces- 
vously  been  granted  e.xempti™  bad-^/  u""  ""^  l^-'  P«- 

work  on  which  they  had  be  n "nga  ' d  ""  '^\ ''""""  "^'^"he 
'ance     'n  October  and  December  5?.:  "'''""■•"  ""P"^" 

^ki^le-I  men  of  military  ageX    " „       ^''"  ""^'''"e<l  and  semi- 

-  for  whom  substitutes'  ^d  be  Cr^'  ""  """"''""  "-'< 
•^'htary  service,  if  f„„„rf  media  Ivfi,  IT-  '"  "^  ^'leased  for 
'o  come  mainly  from  the  follow-Vsources       "  "'^"'"'^^  -re 

r^l^J:  ■"=  ""•"  ""«'  'or  ,e„e.l  service  and  .„.„,„ 


130  BHITISII    LABOR    CONDITIONS    AND    l.tUlSLA TION 

Employers  in  ihg  muiiilions  trades  wtri-  to  furnish  to  the  Min- 
istry of  Munitions  Ii<ts  of  nitn  to  whom  liailRcs  had  been  issued 
and  such  men  alter  a  medical  examinatinn  had  disclosed  their 
fitness  for  mihtary  service  were  to  lie  released  for  such  service  as 
soon  as  the  employment  (lal)or)  exchanges  in  collaboration  with 
other  government  departments  and  the  Army  Council  had  ar- 
ranged for  their  substitutes,  as  above  mentioned. 

These  substitutes  who  were  suitable  for  munitions  work  and 
who  were  willing  to  undertake  it  were  enrolled  by  the  officials  of 
the  employment  exchanges  at  first  as  army  reserve  munitions 
workers.  Men  who  were  not  founil  suitable  for  munitions  work 
were  nevertheless  registered  ( though  not  as  army  reserve  work- 
ers)  as  possible  substitutes  in  other  industries.' 

By  the  first  of  December.  I'.ill),  the  need  of  men  in  the  army 
had  become  so  urgent  that  the  government  had  to  announce  that 
tribunals  could  no  longer  grant  exemption  "  on  grounds  of  busi- 
ness or  employment,"  except  for  highly  exceptional  reasons,  to 
any  man  under  20  years  of  age.  since  any  such  man  "  who  is  fit 
for  general  service  is  of  more  value  to  the  country  with  the  forces 
than  he  would  be  in  civil  employment."  '  and  by  January  20. 
1917,  the  same  rule  was  laid  down  for  men  under  31  years  of 
age." 

National  Service  Scheme 

In  December,  1910,  Lloyd  George  announced  that  the  uni- 
versal national  service  policy  which  had  been  determined  upon  by 
the  late  government  would  be  put  into  effect  with  Neville  Cham- 
berlir  Lord  Mayor  of  Birmingham,  as  director.  In  accordance 
with  '.his  plan,  industries  and  occupations  would  be  scheduled 
according  to  their  essential  utility  in  war  time  and  laborers  would 
be  invited  to  enroll  for  war  work.  If  they  did  not  respond  in 
sufficient  numbers  the  government  would  use  its  powers  to  direct 
them  where  they  were  most  needed.' 

•  Labour  Gairtle,  1917.  p.  56. 

'  BrilUh  Industrial  Experienct,  etc.,  vol.  1.  pp.  723-724. 
'Ibid.,  pp.  724-725. 

*  Gray.  op.  cit.,  pp.  45-46. 


THE   SLPPLV    AND   DISTHIBLTIO.V   OF 


>BOR 


Ml 


It  was  m  accordance  wilh  ihis  plan  that  .he  Minister  „f  Mun,- 

.h     rjefen«  of   ,he    Realm    Ke^ulafon    ..\.   «hereM    „, 
n,.l,tary  age  ,    .  „,  „„  i„,|„s,ve,  «ere  „o,  allowe.l  u;anr-^l 
one  of  a  long  l,s,  of  occupations  con.aine.l  ,„  a  sche.lu     ace  m 
panyng  the  or.ler,  except  "  vvi.h  ,he  consent  of    1      ,,  r" 
General   of    Xa.ional    Service,   ^iven   on   ,„.   ,roun,      h"    h 

men   contract,  or  on  the  Rroun-I  that  ,he  work  on  wh.ch  L  .     n 
are  to  he  employe.l  is  of  na.ional  importance,"     These    1 
.on»  .nclu,led  .he  manufacture  of  a  lar  -e  numl.r  of  on  ,1  " 
e  .her  luxur.es  or  generally  helievH  ,o  he  no,  e.s.sen.i..  li,      1; 
nm       and  also  mcluded  the  distr.hution  and  sale  of  sue     cm 

c"      t-Tn  „J  h        "  ,"'  '"^ '"'"  "■"  •"■' '"  ""-  -'  ■""-     - 
leT      h  "'  '"'^"'""''  '""  '"  ''^^"•"'  'h-r  expans,,,,,  un- 

!::n,eTt;?:;:rC'^   "^  --'^   ">•   •".■  emplo,men,   of 
The  Director  General  «f  National  Service  issued  a.  dK,,,,  ,h, 
same  „me  as  .he  issuance  of  .he  order  of  ,l,e  A   nistr  '  i 

.tons  contammg  ,he  lis,  of  res.nced  occupa.ions.  Tl     ' ,    '  IZ 
and  occupa„ons  o,  primary  impor.ance  "  '  into  „h„     new  M 

,.I!"m '"'k'?  °'  ■^'"'""''  ^"""  "■■■'^  "^="«'  I'V  act  of  f>arlia 
-en  .  >r,,rch  ..«    l»n,  ..  f„,  ,he  purpose  of  making  ,he   ,,,  u  ^ 

tr.;X;::;:rt:^:.""v:-^-;r^^'"r^-^^-- 

Director  General  of  XationalServ   eByhi;"'::" '''^ '','''' °' 
made  for  volunteers  to  be  knownTs  n„        t  ''''™'  "=•' 

^^Ho  .ere  to  go  into  an^u^^  ::^':i  ::z:'::T'u 

iLtiL  .Ls"''°r  "'  ^"'■"'"'^  '''  employment  IxrhaTgL  in 
allocatmg  these  volunteers  to  their  work  that  the  Director  Gen" 


132  BRITISH    LABOR    CONDITIONS    AND   LEGISLATIUN 

eral  of  National  Service  issued  this  list  of  "  trades  and  occupa- 
tions of  primary  importance  "  just  referred  to. 

The  Ministry  of  National  Service  was  organized  on  a  large 
scale.  Much  lalx'r  and  money  was  spent  on  organization  and 
advertising  and  >cveral  hundred  thousand  men  were  enrolled 
within  a  few  weeks  as  national  service  volunteers.  The  plan  at 
firt  seemed  to  be  a  failure.  Three  months  alter  it  had  begun  it 
was  said  that  the  number  of  men  shifted  from  one  occupation  to 
another  deemed  tii  lie  more  essential  "  was  actually  Mnaller  than 
that  of  the  staff  employed  at  St.  Ermin's  lintel  in  >hifting 
them." 

Several  reasons  are  given  for  the  failure  of  the  plan  as  origi- 
nally constituted ; 

1.  The  plan  dilplicaled  in  largt  measurt  the  work  of  thi:  tuiploymetit  ex- 
changes instead  of  sui)iilenieiititi«  it. 

2.  Men  were  enrolled  fur  service  without  any  attempt  having  been  made 
to  ascertain  where  there  was  any  demand  for  their  services  ■■  Sevtii-eiK'hths 
of  the  volunteers  are  men  who  can  not  possihlv  he  sjiared  from  their  present 
p(  sts.  and  no  one  knows  iiow  to  extract  the  "ther  eipluli  or  what  tn  d.i  with 
It   when   It   is   extracted.     i 

.According  to  the  original  plan  the  enrolment  of  volunteers  was  dnne  hy 
the  national  service  department  and  the  men  were  to  he  placed  li>  the  em- 
ployment exchanges. 

,t  Organij^ed  labor  seems  to  have  regarded  the  scheme  as  a  thinly  veiled 
substitute  for  industrial  conscription  which  w:;s  unpopular  with  the  trade 
unions  and  with  laborers  generally.  Men  who  were  willing  enough  to  be 
drawn  into  the  service  of  the  state  at  an  arbitrary  wage  and  for  dangerous 
duties  were  not  willing  to  have  even  a  mild  ft^rm  of  compulsion  applied  to 
service  for  a  capitalist  employer  working  for  profit. 

An  effort  was  made  to  amend  the  scheme  during  the  spring  of 
1917,  by  placing  the  responsibility  for  selecting  the  persons  to  be 
shifted  from  the  less  essential  to  the  more  essential  industries 
upon  joint  committees  of  employers  and  workers  in  each  organ- 
ized trade  and  upon  local  national  service  committees  selected 
to  deal  with  the  unorganized  trades  in  every  urban  area.  Those 
who  volunteered  under  this  scheme  were  to  be  called  "  substitu- 
tion "  volunteers.    They  were  to  be  allocated  to  their  work  by  the 

'  The  Niw  Statesman,  April  7,  1917,  p.  5, 


THE    SUPPLY    «vr,    „ 

-Ostnun-on  office,  o    .  ""^  °^  '■''^''  ^^^ 

were  made  „,ore  attractive  than  ?h  ,  h.,'  '"""^  "'  "-^'^  '"".s 
^  '«"  f--  'he  following  statemem        ''""°"-''>-  •--•  -  Jl 

»h"  has   b«n   cail.d     '    .o  '  I"  "'  "  ">="  "1^,1'"''  "">    >nP-'l 

-"-;:^:rt::^c:'^7---^--cHen,eit 

select  committee  on   nat.onal"   """'f ''"''>■  Practicahl..      The 
"•  ">e  House  of  Common"    o    *""""■-■  "'•"""""'   ''v  -d 
.uresan,l.ee„.hatifa„reconlr'™"::  '"'"  "-'■"'  «P™  i 
-"committee  re,,„rte,l  on  Z  J:;:'"":  '"  '"''"''■  "-'".>' 
Alm,,,try  of  National  Service  f'om       K         '■'^P^'"''""-^^  of  tl-,. 
ber.  101..  ,o  .,„^,.,,,  r,-        ^^'"'^'""'■"'^^-''"fnecem- 

t.'neha,  heen£2,;,7,,,;the,ot  Istlff'  "Pf"''''-"  "P  •"  'hat 
■•91  on  August  n.  The  res„  tlf  1  "'  '"-  ""  ■'^''•"•ch  .'il  and 
'^/^■^^'^  men  and  41,S8nom/n      '^  "'-"''''-e  '''  '-"   <^^ 


131 


BRITISH    LAUOR    CONDITIONS   ANU   LLGISLATION 


The  New  Statesman  in  July  eclared  that  national  service  was 
dead,  although  the  government  kept  up  the  pretense  that  it  was 
alive.  This  was,  to  say  the  least,  an  exaggeration.  The  plan  had 
up  to  that  time  proved  ineffective,  but  it  was  not  dead  and  later 
in  the  year  was  enlarged  and  wide  powers  given  to  its  director. 
In  the  meantime  the  way  for  a  more  successful  distribution  of  the 
man  power  of  the  country  had  been  paved  by  the  decision  of  the 
war  cabinet  to  call  into  military  or  naval  service  men  who  had 
been  employed  on  munitions  work  and  who  had  been  protected 
from  calls  for  enlistment  by  their  trade  cards  or  war  service 
badges. 

The  Protected  Occupations  List 

A  list  of  protected  occupations  was  issued  by  the  Ministry  of 
Munitions  which  went  into  effect  May  1,  1!)17.  Employers  were 
required  to  send  a  list  of  all  their  male  employes  who  were  over 
the  age  of  10,  together  with  the  total  of  women  and  boys 
employed,  to  the  munitions  area  dilution  officer  of  the  area  in 
which  the  establishment  was  situated.  They  were  to  mark  the 
names  of  these  men  for  whom  they  claimed  protection  under  the 
schedule.  The  actual  selection  of  the  men  who  were  to  be 
released  was  made  by  the  district  representatives  of  the  Admir- 
alty or  director  of  army  contracts.  Only  men  who  were  found 
"  indispensable  for  the  fulfilment  of  the  varying  programs  of 
ship  construction,  munitions  and  other  essential  government 
work  were  protected  from  recruiting  "  and  even  these  men  were 
protected  only  provisionally.  The  army's  need  might  again  be 
urgent  or  experience  might  show  that  operations  performed  by 
the  protected  men  could  be  undertaken  by  men  released  from  the 
army  or  by  women. 

All  exemptions  previously  granted  by  trade  cards  or  war  serv- 
ice badges  or  certificates  were  canceled  and  those  workmen  who 
were  protected  (temporarily)  from  recruiting  were  given  red 
cards  (army  form  W.  3476A),  while  those  who  were  engaged  on 
Admiralty,  War  Office  or  munitions  work  but  were  not  protected 
by  the  schedule  were  given  cards  printed  in  black  (army  form 
W.  3476B). 


m 


exemption,  might  present  the^c  a.  °  n  '"i^^' '"'' '^'^™^'' 
commutee  set  up  in  every  munitinnT  '"  ""'''""""'  '■='™' 

which  consisted  of  one  later  ren-,"'"  """'"'"«  <"««  and 
representative.  A  central  commrr '"' °"^ '^°^"""'™' 
divisional  areas  passed  unlT"  '"'  '^'^  "<  'he  eisht 
tees  were  unable 'orgree'      "  ""  ^''''''  "^^  '°-l  contmil! 

Where  men  were  ca?l»^  ,.„  >  ■  . 
substitutes  were  nled^  the  Tove^m  T"'"^"  '°"'''"^'  '"=" 
would  be  made  to  suppW  them  p"  '  ''™'"'^'"  ""="  ^'f°«'' 
ever,  that  "the  need  of.he  armv  fn?"^  ■"'  "'"'  "•^■•"^'''  ^ow- 
of  the  release  of  men  being  deZd  in""  "  '""  "«^"'  '°  '^•^'-^ 
have  been  provided  and  fha  ^  su„nl  "V"'' """' '"'^^'■■*«'« 
■''ely  to  prove  une„ual  to  th  d  land  •?!'  tT  '"'''''"'''  '' 
to  employ  women  wherever  nossihl/.  ./=^"^P'">"«  "ere  urged 
for  the  work,  and  to  effi     a  tran  Ir  ''' '''''  '^  "'^  '"'"^d 

within  their  works.  ''"  °'"  ■•earrangement  of  labor 

tHattCN^iorilt-eo'fpa'rtLr  °'  ^^^''''"^  -^^'■•-" 
scheme,  and  by  means  of  whi  rrann!''  T"'''''  "P  "■"'  'his 
of  life.    In  every  munitionla  ea  ^f'^ZT'"''  "  ""^  '"^-^ 
ment  officer  representing  the  Mi^7^°?" '"  ^"^  employ- 
substitution  officer  representlMxT^  °'  ^^°'  ""'^  "n  area 
-ere  located,  and  on  Zm    fll  ,t '''"■°"^'  ^"^'«  ^^P-tmen 
substitutes  where  required     The  firsrsa"""""'^  °'  ''"^'''"^ 
quota  of  men  from  each  district  r^„        F7  '""'  °'  "'^  '"'^l 
-ere  to  be  furnished  withou  ren  e  t'o  th  "  '"''''"'  ^"-'^ 

sftutes.     Thereafter  the  release  of  ''"'"''™  "'  ^""^ 

upon  the  finding  of  substitutes  and  thT"  ""'•  "''''  '''^P^"''^"' 
officer  was  to  notify  the  muni  inn.  '"""""'"'  "^^^  'l"""'"" 
men  made  available  for  m"li tarv  ,r"  T""'"^  ""^^  "^  'he 
substitutes.  "'""^'>'  ^'"'«  by  the  provision  of 

'^^p'^'Z^^.1;T^<  M"ni,i„„.  c,,„  „,  ,„,^  ^^^^^  ^___^_^ 


:|l    J' 


136  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

The  line  of  division  of  work  and  authority  between  the 
employment  exchanges  and  the  National  Service  Department  in 
the  efforts  to  supply  substitutes,  was  at  first  not  clearly  defined. 
Circular  R133  issued  June  8,  1917,  attempted  a  division  along 
the  following  lines ; 

(a)  The  employment  exchanges  were  to  deal  with  »ar  munition  volunteers 
and  with  army  reserve  munition  workers  in  addition  to  their  ordmary  work 
of  placing  men  in  employment.  They  were  also  to  deal  with  persons  of  the 
profession.il  or  business  classes,  whether  enrolled  as  national  service  volun- 

teers  or  not.  .       , 

(b)  The  national  service  department  was  to  place  the  national  service 
volunteers  and  the  substitution  volunteers. 

The  National  Service  Department  drew  up  a  list  of  certified 
occupations,  which  was  issued  as  Circular  R136  on  June  23, 1017, 
and  which  took  the  place  of  previous  lists  of  protected  occupa- 
tions. Indus'  11  of  an  occupation  within  this  list  was  evidence  that 
the  governmt;-.  departments  and  the  Army  Council  had  agreed 
that  the  work  was  of  national  importance,  and  that  men  employed 
or  engaged  in  these  occupations  were  entitled  to  exemption  from 
the  military  service  acts  when  individual  certificates  of  exemption 
had  been  issued  to  them  by  the  appropriate  tribunal.  Mere 
employment  at  an  occupation  included  in  this  list  did  not  auto- 
matically exempt  the  individual  workman.  It  was  distinctly 
stated  that  "  men  who  have  a  bad  record  for  absenting  themselves 
from  work  "  should  not  be  granted  exemption  and  exemption 
having  been  granted  should  not  continue  in  such  cases. 


New  National  Service  Plan 

The  division  and  distribution  of  powers  among  the  several 
authorities  concerned  with  recruiting  and  the  provision  of  sub- 
stitutes for  men  called  up  apparently  did  not  work  smoothly  for 
in  October,  1917,  it  was  decided  to  transfer  to  the  Director  Gen- 
eral of  National  Service  "  the  powers  and  duties  of  the  Army 
Council  .   .    .  which  relate  to  recruiting,  the  calling  up  of  the 


volunteers  for  work  of  nat.ona  In!  !  'c''""'=  '°^  ^"™"i"g 

-"ade  evident  by  the    "' '°"/' "".P"'^""-    Some  of  the  defects 
remedied.  ^      '  *"'^  "P"'"«  °f  «he  department  were 

(1)  Arrangements   were   mar),   .„   j  . 
-der,a,m,,   „,   „,.,„„,,    CrL'cVa"'™;!  I'd '''™""*    '"   '""^   ■■■ 

y^^^zi-i-z:;':'^'^^:^  -■"'"  --"^  --- 

hope  was  expressed  that  when  definite  ""  """•  ""iKXions.  but  the 

~d  the  „e„ssar,  «.^Ir:S\^--  ^  *l£ 

(^Pccal),  b„,  were  to  conti„„r„„der  the  terms'  'h  "".  ^''""'  ^"''"'^"^ 

?-'o  rr:^tr  -  -^tt™  -^ -t;-^^ 

.1.  y  possessed  the  necessary  ^uahfi::;^*^"  -"-"""^  °«-«<f  for' which 

V^-wr^;:^:r^' S;°  -,f--  70  three  categories: 
obtamed  by  trade  commi  tees  oV  em„  °'  ""*"'  »"  'o  be 

to  be  Placed  by  the  comm  tVes   „ T/cif"  "",'  *°''"'  '"«  ""' 
'""  supplied  ,0  them.    The  com" itte,  "         "'''""'  '"'  ""^  '™n, 

,F:aCrs^-"--=-^:v^:^ 
^■f^--<S?.^wr=-:^^ 

emS™  e«ha„S  Th  ^a^ '"f  ^"^  ^'^"  -"  "-V  the 
"^"  """^  ^'un'eers  were  to  receive 

"^J^^S^^^^i!  ^'S^r  Orders,  October  2.  and  ^0.    B.„,  ,,,„,. 


138 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


on  transfer  the  rate  of  wages  they  were  receiving  before  they  were 
transferred  or  the  time  rate  of  the  district  to  which  they  were 
transferred,  whichever  was  the  higher.  If  sent  away  from  their 
homes,  they  were  to  receive  railway  fares  and,  under  certain 
conditions,  the  usual  subsistence  allowances,  and  those  enrolling 
for  a  year's  service  might  receive  out  of  work  pay  or  a  guaranty 
of  employment  for  six  months.' 

In  the  fact  that  volunteers  are  enrolled  only  after  a  demand  for 
their  services  has  been  demonstrated  and  in  the  closer  coopera- 
tion with  the  employment  exchanges,  the  new  scheme  for  national 
service  is  undoubtedly  vastly  superior  to  the  old  one  of  register- 
ing a  miscellaneous  lot  of  volunteers  whose  qualifications  are  not 
easily  ascertainable  and  for  whom  there  may  be  no  demand.  The 
scheme  has  also  profited  by  the  larger  authority  given  to  the 
director  in  the  control  of  recruiting. 


Industrial  Conscription  a  Reality 

A  conclusion  to  which  one  arrives  from  a  study  of  the  develop- 
ment of  the  government's  policy  of  exercising  control  over  the 
supply  and  distribution  of  labor  during  the  war  is  that,  despite  the 
objection  raised  to  conscription  of  labor  and  despite  the  caution 
imposed  upon  the  local  administrators  to  avoid  anything  in  the 
nature  of  compulsion  in  their  dealings  with  labor,  the  policy 
which  has  been  evolved  is  little  short  of  compulsion  for  men  of 
military  age. 

It  is  true  that  men  are  not  called  up  and  arbitrarily  assigned  to 
a  given  task  as  they  are  under  the  military  service  acts,  but  the 
fact  that  men  of  military  age  are  not  allowed  to  enter  many  oc- 
cupations except  with  the  consent  of  the  National  Service  Direc- 
tor means  that  they  are  limited  for  new  employment  to  the  war 
industries  or  to  those  of  national  importance.  Having  entered 
such  occupations  nominally  as  volunteers  they  are  subject  to  the 
terms  of  their  contract  with  the  government  for  the  period  stipu- 
lated. If  they  do  not  fulfil  their  contract  or  if  they  are  charge- 
able with  bad  time  keeping  they  are  liable  to  be  withdrawn  from 

>  Briliik  Iniiulrial  Eiperinci,  etc.,  vol.  1,  p.  817. 


from  th.  recruiting  office?b"e;„,^r'  '"  '  ""^'"^'  P^"'"^" 
when  the  need  of  men  fo  m  ,,,1"  '"^'f^P^"'"'"^"  does  n..  avail 
d.lm,on  officer  finds  sa.isfa«o  v  ,.  K?^'"  ^™*'  ■"■«'"'  '''  "-e 
those  no,  available  for  mH  a^y^erv  ce  Th'  ',""  '"^  "•^''  "^ 
"""  "1  the  army  has  become  mnrl  '  ''""^"''  ^°'  """-e 

month  and  the  industrie^  oT  thrcn„n7'"J  "'"'  '^"^  P--"^ 
^■"e  and  again.  The  success  ol  th^  r  ""'  ''""  "'"""-ed  " 
been  dependent  upon  .he  cce L  o, 'tt'.?' ■  """""'"^  "as 
described  in  the  following  chap"  '  ''''""°"  P""^--  'o  be 

"oubtless  such  control  of  labor  ».  ■  k.- 
national  service  scheme  is  ne «  sa  "  ^"^  '''""""^  ""<'"  '"e 
ary  service  acts  and  because  of, I  '  '°'"P'*'"e"t  to  the  mili- 
the  war  industries,  but  when  oL  .  T """'  "'"^  °<  ""^n  by 
the  government  has  gonl  i„  ,„  „7",''"  "'  '^"^.h  to  which 
a"d  movement  of  later,  h  is  LT-'  °"  "'  ™P'''>™-' 
abor  has  in  reality  accomp  ished  luehT  !'  "'"'•"  "^^^"■"d 
'"'  --«»«  to  the  indus  n-^'lrSt  ;'o?,Xr'^  — 


CHAPTER  VII 


The  Dilution  of  Labor 


By  the  middle  of  the  year  1915  it  had  been  generally  recognized 
that  neither  the  transference  of  worl  rs  nor  overtime  work  would 
be  sufficient  to  secure  the  increased  production  required  by  war 
needs.  Employers  as  well  as  the  government  recognized  that 
some  reorganizrtion  of  industries  must  be  effected  which  would 
permit  the  employment  of  a  larger  proportion  of  unskilled  work- 
ers. This  policy  of  introducing  a  larger  proportion  of  semi- 
skilled and  unskilled  workers  into  trades  which  had  hitherto  been 
regarded  as  suitable  only  for  highly  skilled  workers,  is  aptly  ex- 
pressed by  the  phrase  "  dilution  of  labor." 

As  early  as  March,  1915,  the  government  had  taken  steps  in 
the  direction  of  diluting  labor.  The  Chancellor  of  the  Ex- 
chequer, Mr.  Lloyd  George,  in  opening  the  conference  of  gov- 
ernment officials  and  trade  union  representatives  which  led  to 
the  Treasury  agreement,  called  attention  to  the  great  need  of  an 
increased  supply  of  munitions  and  the  difficulty  of  bringing  it 
about  owing  to  the  scarcity  of  skilled  labor.  In  asking  the  trade 
unionists  to  suspend  their  rules  restricting  output  for  the  period 
of  the  war,  he  said  that  there  is  the  question  "  of  the  number  of 
machines  which  one  man  is  permitted  to  attend  to;  there  is  the 
question  of  the  employment  of  semi-skilled  labor,  where  under 
normal  conditions  you  could  not  assent  to  it;  and  there  is  the 
question  of  the  employment  of  female  labor.  In  France  there  is 
a  vast  amount  of  work  being  done  by  women  and  by  girls  in  the 
ammunitions  factories.  In  that  country  they  have  suspended 
all  these  rules  and  regulations  for  the  time  being,  because  they 
realize  that  the  security  of  their  country  depends  upon  it."  ' 

^  Forty-wventh  Annual  Report  of  the  Trade  Unions  Congress,  1915,  p. 
220  ff. 


THE  DILUnON   OF   LAB0« 

Trade  Union  Opposition  to  Dilut.ok 


141 


■"   I'll.UTIOK 

>ab:;tt::^.^:::--~prov.ea,o....o„or 

Po».blc  ,he  adoption  of  ,his  Xy'lHj""  '""""•'' '°  """<« 
such  dilution  had  apparently  Ten  L  ?  ^  ^'■'"  '"  ""  ^^X  of 
spit^  of  the  fact  thTt  Seirh.H  '"V'*^'"  "'»  I" 
permit  the  substitution  o  unsWl  d  tl  T>.  "'  ''^'""""'  '" 
for  skilled  workers  in  mun,  o^'S'r  tV  ."'"'  ''"""=  ''"'°' 
unionists  were  greatly  dissaH  L  u    .  """*  ""''  "'«  "f  trade 

for  and  the  necessity'ofXh  l"  H  ."'  """'''•  ""  ^"'O"' 
In  order  to  make  clear  th^  teS  Mr"  n  '"">L""^"^'-d. 
Minister  of  Munitions,  atiende  ,h?T„^^  n'"  '^'°'^''  "'"' 
Bristol,  in  September,  1S]5  and  in  7  .!.  "'""'  ^""^"'^  "' 
«' fo.  •  .he  reasons  whic  had  c  "o  he  h""- '°  '''  ""«"" 
and  explained  more  fully  theme  hi  k  .  °P"°"  °'  "■*  Po'icy 
to  be  brought  about.  °'''  ''^  *'"''■  ""s  dilution  was 

'  The  war."  he  win  "  i.«  . 

the  mechanics  of  Germany  anTtlrlf"  T  "  ^°"'""  "-'-" 
mechanics  of  Great  Britain     d  Franc'or.h     T  ''""•  """  "■' 

m^::^:^:::r::::or?f?----^^^^^^^ 

>ng  emphasized  the  necessity  of  h'^'  .'"""'"'°''' ^"^  hav- 
f^cturing  munitions  ope  XecoL^'"^  '^^  '""""^  "^nu- 
by  day,  Mr.  Lloyd  Geo'^e  rfntrrsXt  ''  ""''  ''  *^"  ^ 

have  enough  labor  for  Ihe  task  IT^  '""Kdom  you  would  !,icj  „„, 

question  of  our  diluting  skifed  iX         .""  '""■'•    ™'"f°^e,  when    ,    "I 

'zr^T'  ^^"''■<  -^--torriot;'':'';'  '^  --'^  ^""-'-  ° 
^^ -^t^°:rzr~- --^r-- - 

-^  ^-/te'h;^,--  --;:^«  ^  .  .^.a,  Of  .he  „rk 
'Report  of  Trade  Unions  r„„„ '      '"'  ""'"  «'"""■"  "-o 


!i'      .J 


-   ■"<:n  now,  high 

Report  of  Trade  Unions  Congress,  .915,  p.  353. 


142 


BRITISH    LABOR   CONDITIONS   AND   r.GISLAT10N 


111 


"i     I 


:     H: 


bavt  yMr>  o(  iraininB,  which  can  ju»t  «  easily  be  ilont  liy  Ihoic  who  have 
only  had  a  few  wcekj'  or  a  few  days'  trainins.  We  want  to  t"TO  Ih.-  un- 
ikilled  on  lo  work  which  unskilled  men  and  women  can  do  jusi  ai  well  ai 
the  highly  skilled  ic  as  to  reserve  the  hi«hly  skilled  Cor  work  that  nobody 
can  do  except  those  that  have  areal  experience,  tramnig  and  skill. 

Another  thing  wc  want  tn  d.i  is  this— you  can  not  leave  the  unskdled  to  do 
the  work  alone  without  haviim  a  skilled  person  to  look  after  them,  lor 
instance,  lake  shell  making,  r  jd  of  puttina  skilled  people  to  do  that  work, 
what  we  should  like  to  do  would  be  to  put  on.  say  ten  or  eleven,  unskilled 
men  or  women  to  one  skilled  man  to  look  after  them.  .  .  This  is  work 
which  is  done  in  l-raiice  and  Germany  by  women.  It  is  dune  in  parts  o 
this  country  by  women  also.  It  does  not  re(|uire  very  long  training.  A 
few  weeks  and  they  are  trained.  In  a  few  days  intelligent  men  and  women 
ire  able  lo  do  it.  It  is  a  waste  of  material,  of  which  we  have  got  far  too 
little,  to  turn  highly  skilled  men  on  lo  do  wort,  of  this  kind  and,  therefore, 
wc  have  got  to  make  arrangements  with  the  trade  unionists  by  which  they 
permit  us  to  mix  the  skilled  and  the  unskilled  so  as  lo  let  the  skilled  go  as 
(ar  as  it  possibly  will,  and  unless  that  is  done  we  have  not  got  enough  labor 
to  go   around. 

Speaking  of  the  results  of  the  Treasury  agreetnent,  Mr.  Lloyd 
George  said  that  although  the  state  had  kept  its  part  of  the  tar- 
gain  by  the  passage  of  the  Munitions  Acts,  which  provided  for  a 
restoration  of  prewar  conditions  and  for  limitation  of  profits, 
the  unionists  in  itiany  cases  were  not  keeping  their  part  of  the 
contract.  The  parliamentary  committee  decided  to  investigate 
these  charges. 

Government  Assists  in  Dilution 

During  September,  1915,  the  Central  Munitions  Labor  Supply 
Committee,  upon  which  the  trade  unions  were  represented,  was 
appointed  to  advise  and  assist  the  Minister  of  Munitions  in  carry- 
ing out  its  dilution  policy.  A  circular  (No.  120)  was  dispatched 
to  owners  of  controlled  establishments  explaining  what  was 
meant  by  dilution  of  labor  and  instructing  them  to  introduce  it 
as  extensively  as  possible  and  without  delay.  Dilution  of  labor, 
as  explained  in  this  circular,  implies  that : 

(1)  The  employment  of  skilled  men  si  Id  be  confined  to  wo-.k  which 
could  not  be  efficiently  performed  by  less        led  labor  or  by  women. 

(2)  Women  should  be  employed  as  far  as  practicable  on  all  classes  of 
work  for  which  they  are  suitable. 

(3)  Semi-skilled  and  unskilled  men  shojld  be  employed  on  any  work 


THE   mLL'TIOV  OP  LABO« 

">«  factory  inspectors,  to  ^1'^''"""'''-  "-""K  ""-ct,, 
"•""...ons  plant,  «„,  ,„,^  ,','  To  e ,27  ."'  """'"'  '"  '^•"•<^" 
"■""..on  could  he  brought  all  \f  i"  ""^  "l'"""'^  '"r  "l-ich 
w"h  employers,  subs,i,„'„on  ^  ,,  J,  ;^;. "'""  <"  -"ference, 
'hroughout  the  year  Iflifi      a\ , '    '  "  Pf"cee,li.,l  rapfJly 

•mployers  and  employe,    Ln^ytr      ""'  '"'"^•''  '""'  '^y 
■n  ".ton,  hosiery,  woolen  and  J    "^^'"""'"""^  '".lustries  bui 

teaching  and  dyeing,  woodto  C  t,'  f"-  ""  '"■  """^'"t 
«  e  clothing,  earthenware  and  chl'  T'"""-  '"""■  ^h-le 
v«led  for  the  substitution  of  m  """'"'"^"■'es,  uhich  pro- 
"rviceand  women  fo  m„of  m  ita""'  "'"''""^  '"  """'"r 
«reement  that  at  the  close  of  .^'waT  T  '"'f"""  with  the 
for  md.tary  service  were  to  be  rZlZJ^  '^'  "'°^'<"'  '"""'"ed 
prevailed  in  the  prewar  period  ""''"  '^°'"""°"»  which 


ScARciTV  OF  Male  Sijbst.tutes 


^;fa::lr::S'n:^---nwasnotla,e. 
^Icmed  labor  was  as  much  h^^demand  f7     r"  ™''"""'^"  '°' 
were  the  skilled  laborers.    SomeS         ?'""^  P"^P"^«  « 
substitution  by  the  introducHonf  "en         ""'■'"  ""^  '^"^  "f 
by  the  earlier  promotion  of  boys  s l^"  ,t"  """'"-^  ''^^  ^"^ 
-ndertake  men's  work-.he  %eTf    h^     T  ='PP^^""«ship  to 
n-any  instances  by  women  or  g  r       h*"'  ''°^^  "^'"e  'al'en  in 
.nstances  where  an  attempt  wa    madftn      l''  "'  "■"""  '"  "«' 
•hat  the  employers  had  to  fall  LTunln  7  '  .'""''"•""''"^  was 
supply  of  substitutes.  "P°"  '^""^'^  'abor  for  their 

anltrun^^i^^/re^ralMnd'T ''''.'°'^'  '"""^-  "f  ■'''.•"ed 

^"^eed  such  fibres  w:ul"bS'::T^  """'"''  '^'■"'^<'- 

•demarcation  toween  skilled  and  unlL  """  '""  ''"^  °f 

™.n.    Some  indication  Of  r^-;:-;:^.;;ve. 


^-  ^-i; 


\ 


11 1  1 


144  URiriSIl    LABOR    CONDITIONS    AND    LSGISLATION 

stitution  ii  afforded  by  the  tigures  furnished  by  the  labor  ex- 
changes for  ihe  insured  trades  which  include,  it  will  lie 
remembered,  among  others  engineering,  shipbuilding  and  works 
of  construction. 

In  11114  the  numlier  of  "  skilled  vacancies  "  filled  by  men  in  the 
insured  trades  registered  in  the  labor  exchanges  was  i>J>.soo 
In  1015  it  had  fallen  to  .'-';!,M)U,  in  spite  of  the  war  demands, 
and  in  l»l(i  there  was  a  further  decline  to  IIM,'.':)".  The  number 
of  "  unskilled  vacancies"  in  these  trades  filled  by  men  regislerc  ' 
in  the  labor  exchanges  was.  in  lUU,  1»l',-*24.  By  1!)15,  tins 
number  had  risen  to  M'Jfi-''  and  by  I'.ilii  to  210,i'-<(i  • 

A  slightly  lietler  showing  is  made  if  the  en,' "'■''■"ig  trades 
alone  are  considered,  but  it  is  at  once  obvious  that  the  enormous 
war  ilemand  for  lalior  in  these  industries  was  to  Ik  met  in  only 
a  very  small  degree  by  the  use  of  unskilled  male  la'jor  to  take  the 
place  I,;  skilled  workers. 

FEMALL    LABr\    AVAILABLE    EaRLY    IN    THE    WAR 

Owing  to  the  .,c:.rcity  of  male  lalxir  of  ^11  sorts,  in  the  efforts 
to  find  substitutes  for  skilled  lalxir,  emphasis  was  of  necessity 
placed  upon  the  utilization  of  women  and  girls.  The  extent  of 
the  changes  which  took  place  during  the  first  year  of  the  war  in 
the  way  of  substituting  female  labor  for  male  labor  is  not  easy 
to  trace,  on  account  of  the  absence  of  official  statistics  and  the 
lack  of  government  participation  in  the  movement  to  effect  this 
substitution.  While  the  great  majorit)  of  these  women  laborers 
were  hired  by  private  employers,  independent  of  efforts  made 
by  the  labor  exchanges,  the  reports  of  these  exchanges  neverthe- 
less indicate,  proliably  with  a  fair  degree  of  accuracy,  the  tend- 
ency to  exhaust  the  supply  of  male  labor  by  military  service  and 
the  extent  to  which  women  workers  have  supplied  the  lack  of 
men. 

The  number  of  men  and  women  remaining  on  the  registers  of 
the  exchanges  at  the  end  of  each  month  is  the  number  of  persons 

»  The  figures  for  1917  are  not  comparable,  for  they  include  additional 
"insured  trades." 


wl,     I.  ^"^  '""•I'TIOV  or  LA»n, 

'•  -  -■;  -r.-  ■■;;;■■'"  •—  CL^r j,  t'™ 

but  the  extent  .„     l  "^'^  "<«  ""ly  the  ■<...'    ^  '"^'■^ 

■■".  e.p,o,  J„,     "^  •"«  -ease  ,„  ,he  nu.^:":;: -"„  i::''.' 

P"iod  Endmg  ^'""'"  P".™'  i^fe"  ■"  ««  Law. 

July   17,   1914  .._ 


Ptriod  Ending 
J<"y   17.   I9I4 
January  IS.  1915 
•'"ly   16.   I9I5 
January  14,  19,^ 
July   14.   1916 
January   i^,   ig,, 
July  IJ.   I9I7 
January  l|,  i,,'," 
'"'y  12,  1918  . . 


•Mm 
85.185 
67.215 
■W.SM 
39.S22 
W.JI5 
SJ.590 
■«.J64 
18,541 
30.661 


Women 

17.115 

MS6t 

«S,«2] 

71.429 

n.«4l 

«M.I52 

J^.565 
SJ.949 


.    ,  JU.661  •"■•'M 

'^  few  words  of  »„.,i        .  '•'•'^' 

fluctuations     Af^/r  ,? f"'"°"  "^"^  "ece^sarv  ,.  ■ 
summer  of  j«,4  'f:  "^  "^^'^f  P"'od  of  u  e^n  o  J"*""'^'  *'■'- 
"-e  reffiste's  •  ,'•  l     *"''"'  '"  'he  numberTt;      "'  '"  "'^  '^'"^ 

«-K,  hut  huiWi  '^  et   .^T ."--"  f-  'aw  t  :/;"''^'- 
■  /..A       r.  ^''«  "icrease  m  ti,  ,  ""^ '"""Uions 

''Si^?k?a"k  '"=■  P-  «.  "  '"^  """"^^  of  women. 


,  t  ,a 


146  BRITISH   LABOR   CONDITIONS   AND   LEGISLATION 

however,  does  not  admit  of  so  simple  an  explanation.  For  th^ 
latter  part  of  19U  and  for  some  months  in  1015  the  number  of 
women  remaining  on  the  registers  represents  a  demand  for  em- 
ployment which  met  with  no  adequate  response  on  the  part  of 
employers.  In  September,  19U,  nearly  a  quarter  of  a  million  of 
women  in  strictly  industrial  occupations,  were  unemployed  com- 
pared with  the  numbers  in  industry  at  the  beginning  of  the  war. 
From  September  onwards  women  unskilled  and  industrially  ill  equipped 
as  the  great  majority  of  them  were,  poured  into  those  trades,  leather 
"iloring  metal  trades,  chemicals  and  explosives,  food  trades,  "os.ery  and 
h  woolen  and  worsted  industries,  which  had  bee,,  f^'^l^^'^l 
the  placing  of  large  orders  by  our  own  and  the  Alhcl  govemmentv  Be 
tweeu  September  and  December  over  130,000  women  were  drawn  nuo  the 
rLks  of  industry  proper,  but  still  80.000  unemployed  women  remanied  .n 
Iplie  of  the  net  shortage  of  men  which  amounted  to  about  a  quarter  of  a 
million." 

The  contraction  of  women's  employment  had  not  disappeared 
in  February,   I'M.,,  when  the  number  of  employed  women  in 
industries  was  still  1.5  per  cent  less  than  in  the  precedmg  July. 
The  recovery  seems  to  have  been  most  marked  in  those  branches 
of  the  clothing  and  food  trades  on  which  the  government  was 
dependent  for  its  supplies,  such  as  military  clothing,  boots  and 
shoes,  canned  and  preserved  foods.     Unemployment  was  most 
marked  in  other  Ijranches  of  the  clothing  trades  and  was  partly 
due  to  economies  being  practised  and  partly  to  the  fact  that  many 
men  were  going  into  khaki.    Women  were,  in  increasing  numbers, 
finding  their  way  into  the  metal  trades,  but  for  this  work  many 
of  the  unemployed  were  untrained  and  while,  in  some  cases,  em- 
ployers undertook  to  furnish  the  training  necessary,  "  in  most 
cases  time  was  too  short,  the  experiment  too  risky  and  the  pres- 
sure of  business  too  great,  for  employers  to  become  enthusiastic 
over  such  schemes."  *    Most  men  seem  to  have  believed  that  the 
war  would  be  -     ^lort  duration  and  were  therefore  reluctant  to 
undertake  in;po      .u  readjustment  plans. 

iBrilish  Association  for  the  Advancement  of  Science    Orajt  Interim  Rt- 
porlTl^cC^f '">•''  ">  invesligale  m,o  oullcis  for  labor  at  the  e„d  of  tk, 
war.  p.  4. 
a  //>irf..  etc.,  p.  5.  ,„  ,, 

•  Kirkaldy.  Ubour.  Fwanc-  and  the  War,  p.  63. 

*  British  Association,  Draft  Interim  Report,  p.  5. 


THE    DILLTIOK    OF    LABOR  ,,. 

of  women  offering  »hemsel  c   ft     ■  .  '  "''"'''  ""^  """"''f 

At  the  labor  .xJangr^n.bTf ''"'"'  ''""''•^-  '""^^-^l- 
years  was  as  follows:  °^  reg-strations  for  the  four 

I9I4....  Alen                                      „ 

1915...         2.316.042                               Homcii 

1916 1,SI2,3JS  ,,?''■'"' 

1917....     1.229,171  ■^■^-■>"" 

^      '•"'-  S. 

WOM..  ,.  C...C..  ..„  CoMMHRcu.  Oc™r..,o.. 

Ha^=:r^::::-£-~for.ensee..o 
had  already  been  employed  and  had  h'"  '"  ^""'^  """'«" 

A  Clerical  and  CommerclrLf  ""'"""'''' "'''^  ^'^-i'-ties. 
pointed  early  in  1915™d  ^adeTtfre""":'-  *"""""'■""  ^^  ^P" 
year."  The  committee  said  ^  ,  Z  Tl  '"  ""  =""""'"  "^  *'' 
a  realization  of  the  fact  tha  "  '  1  "  *"'  '°''"''  "P""  't  by 
-■•'.••ary  a,e  are  at  prese„gled  ?;,:["  """'T  °'  "''"  °' 
occupations  and  the  certaintv  thT  /'"'  ^"''  """"ercial 

themselves  for  service  wt th'^fMaTst:  f ""^  ."^"  -'"  '"^- 
«he  question  of  finding  "  ,„  aL„=T  ^  ,  "'■  "^■^''^  "'"d 
stitutes."     The  commfttee  sa  d  ?ha    .h"""  ^  °'  '"""P^'™'  '""- 

"Ss, :::;;:  z  ■■'  "■■  ■"■■* "-  ■■■  «■■  - 

(4)  Women  wilhoue  clericar  ,v„    ■ 

At  the  time  the  col:"  r;™"  "  "  "  ""'"'  ™^'-^ 
the  first  class  had  been  so  b  avH    ,1    '""'"'  "  "'^^  '^^''•^™^  'hat 
now  remaining  is  very  s^al  "  ^The      "  7°","""  "  ""^  "™her 


1 


148  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

tricts  was  small  ar  '  their  utilization  had  the  disadvantage  from 
the  standpoint  of  employers  that  the  lads  were  rapidly  attammg 
military  age  and  might  be  lost  to  employers  at  just  the  time  when 
they  were  beginning  to  be  useful.  Soldiers  and  sailors  released 
from  the  service  were,  so  far,  few,  but  the  committee  urged  tha 
the  authorities  take  steps  "  to  release  from  service  all  invalided 
men  as  soon  as  it  is  seen  that  there  is  no  reasonable  prospect 
that  they  will  be  able  to  serve  again  in  the  fighting  ranks. 

••  The  bulk  of  the  substitutes,"  said  the  report,      must  be 
drawn  from  the  ranks  of  women  not  at  present  employed. 
Some  of  the  work  to  be  done  was  of  a  routine  and  mechanical 
character,  but  much  of  it  would  require  for  its  satisfactory  per- 
formance education  and   capacity   for   responsibility  and   the 
committee  believed  that  many  women  who  had  been  educated 
in  the  secondary  schools  and  universities,  or  who  had  had  other 
educational  advantages,  were  well  fitted  for  clerical  duties  and 
would  be  glad  to  have  the  opportunity  to  render  service  in  the 
national  interest.    The  large  business  organizations,  banks,  in- 
surance offices,  etc.,  were  already  recruiting  their  stafifs  from  this 
class  of  workers.    Employers  were  urged  to  give  a  pre  erence  to 
the  wives  and  families  of  men  on  their  staff  who  had  enlisted. 
In  spite  of  the  fact  that  many  women  already  enjoyed  educa- 
tional advantages  for  such  work,  the  committee  believed-and 
it  was  the  opinion  of  employers-that  some  training  was  desir- 
able and,  in  the  case  of  the  smaller  business  establishments  where 
the  work  was  o  f  a  less  routine  character,  it  was  essential. 

A  short  whole  time  training  lasting  from  one  to  two  months  would  go 
some  way  towards  famili.ri.ing  women  with  busmess  routine,  >"*  ">""' 
Ihem  lo  adapt  Ihemselves  more  readily  to  their  work  and  surroundings  on 
actually  entering  employment. 

To  give  this  training  and  to  study  local  needs  the  committee  pro- 
posed that  in  all  commercial  centers 

a  local  body  representative  of  higher  education  and  of  the  commerce  of  the 
district  should  be  formed  to  organize  the  supply  and  trammg  of  women  clerks, 
'iteps  had  already  been  taken  to  accomplish  this  end  in  London, 
Manchester  and  other  places,  and  the  committee  had  sent  a 
letter  to  the  secondary  education  authorities  throughout  England 


THE   WLL-TION   OF   LABOR 

and  Wales  to  uree  ,h.,       u  .  "» 

'oaa:r:r-^;;^-a,soa..„ssedaci..„ 
'hem  ,o  call  .he  a..e,..o  of  .heir  1'"?"  ''"^''''""^  -"^-g 
reviewing  at  once  .heir  pes"  ion  LT  '°  "^"^  "^^^^^  o( 
""ght  not  unduly  suffer '^hrmen  u  'n"'  "'"'^  ''"^'""^es 
«"u,t,„g  scheme.    Strontr  renr  '  '""""^  ""'I"  the  new 

commi..ee,  however,  by  i^'p;  f^^  ;"'f  °"  "ad  been  made  to  thl 
cerns  as  to  the  importa'nce  o^^  retaining""  ""  ''™'""°"="  '™- 
a  suflicitnt  nucleus  of  tr=- 

P.oyn;n:r:::r::l:i;:X^-e  Clear  that  the  em- 
emporary  and  men  replace  1  should  1^  "'=''  '"""^^''  '"  he  only 
'ons  wdl  be  kept  open  Lr  hem  The  '""''"  '"^  'heir  posi^ 
that  the  scale  of  wages  nayabir.n  '°"""'"'^  '"^°  ^"gge^ed 
conditions  permit."  be  based  „„  T"""  *'"'''''  "  ■"  ^o  far  as 
for  similar  work,;  "''  "P°"  'he  rate  of  wages  paid  ,o  men 

;;;-^ari::::,:;:::^--:-e.mb^ 

the  government  and  to  what  ex.elT  ,  ""'  ''"'  '°  'he  efforts  of 

natural  preference  of  thrwomen  fl;  .v  '°  ""  ^^P'^'"ed  by  the 

-y-     Certain  it  i,,  ,ha.  empfoyers  th    "  7"'  "  '^  *'«'="''  to 

"ecessuy  of  subs.i.u,ing  women  fori  ''"^  ^''"^  >^''h  the 

substuution  at  this  point.  '"  '"*"'  P^^^'rred  to  begin  the 

The  conditions  which  explain  th;. 

—  Of  .„...„  ,.  J      •  ;^    "^  -  f-'h  by  the  report 

"■  '"  ^'"'•"  C<K«(,,  1915,  p,  395. 


r;V 


iisi  In 


hh 


I  ! 


t 


150  BRITISH    LABOR    CONDITIONS    AND   LEGISLATION 

of  the  Conference  Committee  of  the  British  Association  for  the 
Adv:..i:ement  of  Science  as  follows; 

Clerical  work  is  obv,n„sly  suitable  for  women,  and  '-"P'of"  •■"«  J"'' j" 
less  hesitation  in  introducu.g  a  greater  portion  of  female  ''^0'  "  *■'  "^' 
of  their  business  than  iu  the  induslnal  side  proper.  The  cond  ttons  of  the 
clerical  Inbor  market,  mcluding.  as  it  does,  a  great  majonty  of  *"»'  «»'^- 
ers  who  belong  to  no  trade  organization,  have  made  .t  eas.er  o  mtroduc. 
female  labor  without  encountering  serious  opposition  from  the  trade  i.n.ons 
concerned,  th.-.n  in  those  trades  where  the  group  of  workers  is  smaller  and 
the  workers  are  more  highly  organised.  Enlistment  was  exceptionally  heavy 
"some  cases  over  30  per  cent,  among  men  such  as  clerk,  whose  occupation 
s  sedentary,  and.  in  spite  of  the  restriction  of  business  the  net  'hortage  of 
men  was  soon  apparent,  and  women,  mostly  young  girls  from  school,  or  middle 
Tged  women  from  professions  which  have  been  h,t  by  the  war,  were  rapidl, 
drawn  in  to  make  up  the  shortage.  Into  government  department,,  lo  a  au 
thorilies,  banks,  insurance  and  other  offices,  as  well  »»""''"">'■  "^"' 
houses,  women  are  being  drawn  in  increasing  numbers  to  do  work  previously 
done  by  men.' 

In  clerical  and  commercial  occupations,  although  women  were 
oftentimes  not  directly  substituted  for  men,  the  resemblance  be- 
tween the  work  done  by  the  two  sexes  was  closer  than  it  was 
in  most  industrial  occupations.  The  failure  to  make  direct  sub- 
stitutions seems  to  have  been  due  less  to  any  inferiority  in  ability 
than  it  was  to  lack  of  training,  although  to  a  certain  extent 
women's  lack  of  physical  strength  was  responsible  for  the  change 
in  organization.  Women  were  employed  more  largely,  during 
the  first  two  years  of  the  war  at  least,  on  the  more  mechanical 
side  of  the  clerical  work :  typing,  shorthand  writing,  copying  and 
filing.  It  is  even  said  that  the  women  preferred  the  routine 
occupations. 

Employers  who  were  interrogated  as  to  the  success  of  the 
women  workers  placed  a  lower  estimate  on  the  value  of  women 
as  clerks  than  on  that  of  men,  due  primarily  to  women's  lower 
physical  strength  and  inability  to  stand  overtime.  There  was  a 
general  opinion  that  on  routine  work  the  women  were  better 
workers  than  men  and  that  they  were  more  conscientious  and 
painstaking,  although  probably  less  accurate  on  the  whole. 

In  the  case  of  ticket  collecting  on  the  railroads,  where  at  first 
.  Draft  Interim  Report  of  the  Conference  to  investigate  into  outlets  for 
labor  after  'he  war.  1915,  p.  9. 


THE    DILUTION    OF    LABOR  ,,, 

were  employed  on  Ihree  .IZHZ   """'^'"^  '^'"'"  "^""^  ="'d 

when  the  traffic  was  relatively  i'h,,*'  ""'"^"  ^'"^  ''^ranged 
■'  -  sa,d  that  three  women  wer  felirld  77  "I  "^  '"^'  ^'"-^ 
done  by  two  men.-  ^"  ™  '°  ''"  'he  work  formerly 

Increased  Emplovment  nr  w 

Hr;v.:rc'EV~"''^™'- ^--- 

ST"  *"  '''''  "•""'-■'  '-fo  "«:,'■•'•'--«  had  „een 

T':/r:::::  "=■"-'•- '-  --^a  -hat-  ^^•'°"  °'  '"^ 

w.., Cereal;  rz7,ir :;;,;--'  „,  „„,,  „„,  ,^^  ^^^ 

would  seem  to  indicate  Thkw  ,  ''"  ""'"'  ^^  'he  figures 
-ed  of  war  supplies  was  .rttr'^  'T""  "^"^  '""^^^^ 
women  had  hitherto  been  I  '  "iv  emnl'"  !,  'J"""  '"  ^^'^h 
branches  of  those  trades  in  wh!  ^  '^"'P'°>'^''-  •»"  in  the  very 
P'oyed  under  peace  ^  di tons  ThT"  T"  "°""="'^  -" 
wh.ch  in  peace  times  normairempwV"^  "'  '"'°""R  '^''"e, 
.'here  was  a  decline  in  the  denfanT?l?h  .  ""'  ''"•"""  ^''n''^". 
•n  which  men  were  largely  eloved'^r''^ '^■''°^'"S  work 

demand  f- ""h'ary  clothing  took  pTae;;"!"""  "'=  '""-^^d 
of  the  trade  in  which  female  iT    ^  ""  "'"'''■""'  branches 

■  nnf.  r„,e™  R.p„,.    7^'"^  '^'»'-  "°™ally  predominates. 

pector  of  Factones  and  Workshops,  1914, 


i'   i 


1,  I 


152  BRITISH   LABOR   CONmT.ONS   AND  LEGISUAT.ON 

152  Bl«in=°  1^     branches 

THS  pan  ..  .he  uade  ha.  ^-Z^ZV^X-l"^""''"  ^  ^^'^^ 

and  from  .Is  fringe  "f  "*«'    »^';  "  """ 

there  was  a  surplus  of  female  labor  ^,_^^_^  ,^^  ^,„  ^^ich  h« 

It  .hus  show«  a  great  merease  »'  <'™    =  ,^'„,,     ^„„,  b,  men  but  merely 

been  drawn  m.  not  to  ^'"'^""YZ^,.  .n  that  branch  of  the  trade  u,  wh.ch 

to  cope  w,th  a  huge  merease  o'  "^' ,  ^^'V    ..l^ally  employed.     Agam    the 
.larger  proportion  of  women  than  men  .s  n  ,  ^^^.^^  ^,,j  ,^, 

,o:h'fr„m  which  the  uniform  ■-"*--*:  ,„/.t  have  resulted  as  m 
huge  demands  upon  the  wool  """l  -■^""'l"  ,^„^|,  ubor  compared  wth  the 
the  tailoring  trade,  in  a  '-JS"  l^;;^.  f  J'^hole  would  normally  employ, 
demand  for  male  labor  than  'he  t  ad^>*  »  „^^  ;„  ,he  leather  trade 

The  great  increase  of  """^ '^.  "^^'°  "h^er  accoutrement  branches  on  proc- 
has  to  a  certain  extent  been  .n  "?=  ''«^'"/^""  .„d  ,hoe  branch  there  has 
esses  normally  done  by  w"-";»^'      ;*-  owing  to  the  heavier  nature  of 
actually  been  -.  "f  ""Z"' ^  .^Tan  in  the  civl.an  boot.' 
the  work  required  m  the  military  man 

Women  in  the  Munitions  Trades 

The  second  sta.e  in  the  ^^l:^:^:^ 
when  they  began  to  te  '"^P'^yf^*^  f„l"  cached  even  during 

r;:;::r™:r  :.-*"■—•  -  "■•  - 

unions  already  r^f"";^,t°-  T-soector  for  19U  says  that 

The  report  of  the  Chtef  ^^''^s^^Zmb^rs  of  girls  and 

in  ordnance  and  '"""'''""^  ""^tVad  Jrelusly  never  worked 

women  have  been  employed  wh°  had^/V^  J„j  ,,,  British 

in  a  f-'-^°^,fl''*;,V ride  in  August,  1015.  says  that 
Association,  in  its  first  f^P""  "T  ■      j^to  the  armament 

tnany  thousands  of  women  had  bee"  ^^'^^f^^j^^  February  of 
branches  of  the  metal  and  '="g'"''""f  j™"  f,,  a  whole  had 
that  year.     Up  to  February  ^^^  ^^^'^^^fwomen  amounting 

one-fifth  the  number  employed  .n  France. 


THE   DILUTION   OF 


'ABOR 


^r    ,.„BOR  . 

ment  on  repe.i.io^n  work  and  au.oir'  '^  u^"  °'  "-^'^  '-P'oy 
or  no  departure  fron,  .he  „"  Hrir'.''"."^ '""'""^ ''"^ 
accustomed-their  work  is  m/inl  L      '^'^  '"''  "n'inanly 

c'eaningof  shells,  bori  gird  fn^",  "',  "'''"«•  ^'"'^'"'^  -'' 
Enghsh  and  French,  anrcanHdglsr^^^     '"- of  ,„  .^^.^ 

ones,  however,  even  as  early  JaZ7\,,,'"J'''  ^'""  '- 
some  cases  executing  the  entire  nr  /     '  *°"'*"  *"<•■  '" 

s'art  to  finish,  involving  twen!  „T"  °'-^''^"  ""^'"^  f^^ 
e;ghteen-inch  highly  ex'p loTeVh  1  s'TnT  r"  '"  ""=  ^^'^  "^ 
shrapnel,  ^"*  ^"'i   Kussran   three-inch 

wo'i^rrhfpo^sTbiiS  'oKcrjrrr''"'"'  -  "p^"- 

order  had  already  ^en  d^m  stra  m'^VT^'  "'  '  "'«"- 
Engmcvr  of  August  20,  1915  ZTlu  ''""'^"o"  from  7/,,. 
undertaken  work  requiring  a'  hth  ,  '  '™'"'"  ''="'  '""^  «rly 
must  be  regarded,  how  ver  as  I'l  T"  "'  """''"'^'-  This 
'o  agree  that  women  were  ma Wv  el?  I'  '"'  '"  """"^  -™ 
"Pecially  during  the  firs  eTg  l^omh,  1  'l'  ^™'""  •^^'^■'' 
a  shortage  of  men  required  sub^tn^  °'  '^'  ^"-  ^here 
who  had  already  receVved  some  "  *'•'  '"""''  '^af  hoys 

undertake  the  men's™  a";!!""'"^  7"'  ''"'  ^''^P'«'  'o 
ployed  to  do  work  wh^h  had  In  d  k"".^"'^  ^"'  "'^"  ^m- 
hrought  out  the  fact  that  whe^e  a  ver'  \'  'u'  ""''■  '^''""'-'^e 
was  demanded  girls  could  Tt  ti,^es  beJ  f  '^^'^^  °'  ^"""^^ 
-'  limit  gauging  and  would  per  Lm  the'rlV"  ""  "^"^  "^^ 
men  or  boys.    This,  it  was  safd   wT"  .  *"""  '^^"  ">« 

'-at  it  is  purely  a  mecham'  ';;  „o  "L";  °""  ""°"  '"- 
ment,  whereas  men  will  frequent'  me  .  ''"'"""  "°  J"''?- 
P>ece  of  work  which  is  inaccurat!  ""^^""^  '"  '«'i"g  a 

The  inability  of  worn  rr a  ;';;Th:'"'':^'''^^^^^" 

-nngthefi„tyearofthewa;t::::i-te--J5- 
'  Draft  iMtrin.  Report,  p.  47. 


154  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

not  to  unwillingness  on  their  part  to  undertake  such  work,  but 
to  lack  of  training  and  experience.  At  this  time  there  was  no 
lack  of  semi-skilled  and  unskilled  labor,  either  male  or  female, 
but  the  absence  of  skilled  workers  created  what  seemed  to  be  "  an 
almost  insuperable  obstacle"  to  the  employment  of  the  willmg 
but  unskilled  female  labor.  The  British  Association  Keport, 
made  in  1015,  expressed  the  opinion  that  the  problem  was  not 
likely  to  be  solved  during  the  time  of  war.  It  was  sa.d  that 
women  were  in  many  industries  working  on  processes  wh.ch 
had  previously  been  done  only  by  men,  hut  that  "  the  extent  to 
which  this  has  occurred  is  inconsiderable."  ' 

Industrial  Training  for  Women 
Up  to  this  time  about  the  only  experiments  in  training  of 
women  for  industry  had  Ijeen  those  made  by  the  Central  Com- 
mittee on  Women's  Employment.  Little  work  of  a  Poetical 
nature  had  been  accomplished,  for  the  suggestions  made  by  the 
committee  had  to  do  with  the  making  of  toys,  artificial  flowers, 
baskets,  hair  nets,  surgical  bandages  an.l  work  of  a  decorative  or 
ornamental  character.  There  was  no  opportunity  in  these  trades 
to  displace  men  by  women  and  the  suggestion  seems  to  have  teen 
due  to  a  belief  that  in  order  to  relieve  unemployment  among 
women  it  was  necessary  to  discover  new  occupations  for  them 

The  British  Association  report  for  the  year  Wir,  embodied  a 
scheme  for  training  women,  as  well  as  boys,  in  trades  in  which 
men  had  hitherto  been  employed.  It  called  for  an  increase  in 
the  number  of  technical  and  tra.le  schools  wh.ch  shou  d  work 
in  close  cooperation  with  the  trades  concerned  and  advocated 
a  development  of  "  part  time  "  continuation  schools,  in  place  of 
evening  instruction  at  the  end  of  a  day's  work,  and  advocated 
workshop  training,  systematized  and  reduced  to  the  shortes 
period  compatible  with  efficiency.  The  opinion  was  expressed 
that,  especially  in  the  metal  working  trades,  women  could  be 
successfully  trained  to  undertake  skilled  work.  Experiments 
made  in  some  engineering  shops  had  shown  that  women,  within 

1  Draft  Interim  Report,  p.  7. 


I     ' 


THE   DILUTION   OF   LABOR  jjj 

^Lier^Sas ::,;"" "-  ='"""•'  --^  -'  •-="  '-.y 

n     1 .1    "'"*'"'  *"*  "«"  as  manipulative  dcxteritv 

"..  .nd  .o„„  i^rscrr" "  ™"'  ■'"■" '°' 
.Kr.,i.. ,.  K«  iro  ,ris " ""'  """■ "" " 

had  been  skilled  in  oZ  ,  a  les     Prl"      '  "'"""'°"  "^  -"^^ 
those  who  were  willinTtn t       ,^"^"'""  '"^^  '°  he  given  to 

go  where  thereirs'tLn".       "  e,:  IZr  tj  f ''''  "T'  ^"" 
for  the  course  hut  ^=^1,  i  °  '"  ^as  charged 

undertaker  hat  he  wo  ^wl;:"  H^r'""  '"  '"'  '^  -■'^" 
factory  on  the  comnleZ  of  I  '  '""'  '"   "  •"""''"<"'^ 

this,  the  cost  of  Z  t  °  """'  ""•'•  'f  ''^  f''''^'!  '"  do 

ployed  during  the  firs,  two  Zs  ,^.1™""  ""!  "^."'^"y  <=- 
ment  was  facilitate,!  hv  ,h       ^     ■  '*'*''  *"''  "'"""  ^"T'^y- 

of  the  munitions  factories.'   "^"""^""'^  "^^  "-^  '""""""s  output 

g|g?';J)^^if^:-,-,:<  »::^^:;,'^r^a,  Vv„  aependcn.  on  standard- 

bulk  of  the  «^w„'s  „„,fc  productive  rapidly,  it 


i'i 


156        british  labor  conditions  and  legislation 

Woken  Employep  on  Skilled  Work 
The  third  stage  in  the  employment  of  women  was  reached 
when  they  began  to  re^'ice  men  in  the  performance  of  skilled 
work  In  some  munitions  establishments  this  took  place  as  early 
as  1W15  when  the  British  Association  report  showed  that  women 
"  are  slowly  undertaking  processes  in  many  trades  which  were 
previously  thought  just  al»ve  the  line  of  their  strength  and 
skill."  Examples  of  such  employment  were  chiefly  in  the 
leather,  engineering  and  the  w,«l  and  worsted  trades,  as  well 
as  in  certain  trades  which  had  been  depressed  since  the  beginmng 
of  the  war,  as  the  cotton,  pottery  and  printing  trades, 

While  the  use  of  women  to  perform  skilled  work  was  the 
exception  this  early  in  the  war,  experience  in  those  few  estab- 
lishments in  which  employers  had  been  willing  to  make  experi- 
ments  in  the  use  of  women  had  shown  that  it  was  not  lack  of 
ability  but  lack  of  training  and  opportunity  which  was  holding 
women  back  from  the  skilled  branches  of  these  trades.  Trade 
union  opposition  and  the  prejudice  of  employers  were  also 
responsible  for  the  failure  of  women  to  do  other  than  mechani- 
cal and  routine  work. 

As  early  as  August,  1015,  it  was  said  that  in  a  factory  engaged 
in  the  manufacture  of  projectiles  in  si«s  up  to  those  required 
for  4  5  inch  guns,  women,  working  under  the  direction  and  super- 
vision of  a  few  expert  men,  were  able  to  do  "  good  work  turned 
out  accurately  to  gauge,  much  of  the  work  demanding  intelh- 

„..  no  <rood  ittempling  to  teach  a  womin  a  trade  but  only  that  part  of  it 
•  Draft  Interim  Report,  1915.  p.  9. 


THE   DILUTION   OF   LABOR 

K«nce  of  a  high  deercc  =„,!  ■       ,  •  '" 

The  Bmi.hA,tocia.fo„"e;^^^, :;;:'"«  ""r'^  "Pera.ion."  • 
""'y  the  prejudice  of  cn.pl^  .j^  '"  "'"'  '  '™e  .h.i  i,  ,a, 
un.o„s  which  were  Mandmg'  ,;:' 1 1"-^"^"'"  "<  'he  trade 
«"hsf.u.e  women  for  men  on  ski  t.^  ."    '"'""'  ■•"'^"'P'-^  to 

opZ;::.iS^.^;:::, --;-<^.he  .e.  .rio.  heca...  ihe 

prejudice  of  employers  w      bi^LnT'"  ™  ''''''"'  "-'<■     The 

another  was  laken  over  by  womTn  an  I  "  '"  ""'  ''^^  ""e 
•hem.  Only  ,wo  .hings.7  wa  "  een  'Tf""'  P^'^^ed  by 
substuution  of  women  to  do  men',  l'  :"  "''  ^^^>  "^  'he 
munitions.  One  was  .he  lac^of  ,  w  '"  '  "-""'actiire  of 
"-y  one  to  ^.rform  ,he  mo  .  sk  |  ed  ^"^  "'"""^  '°  *"aWe 
being  gradually  overcome  bvlxn,  "P*"'""'^  -"d  this  was 

™a^e  laborer,  as  instructor^  Th  "rer^K  ''  "'"«  '"'  ^^i" '" 
lack  of  physical  strength  to  pei-fo  "  ,!,  t  '""''  '^"^  '^"'"en's 
part,  this  situation  was  remed^  blT  ""'"  '"'''^  ^"''^  '" 

°f  work  so  as  to  subdivide  , he  „r  """'  ""'"'  ''a«ification 
accordingly.  Mechanica  de  -1  T",':  ""''  «""^  "-e  lab^" 
.ntroduced  wherever  practicable"      "  '''""'^'  «^'  ^vere   also 

--Tr7he"mr;:rr;r.t'^'-'  f  "^^  -^^  ^^^e  been 
passed  through  the  J^,  llZu^f'  °'  '^"^  -"o  ha 
'"  these  schools  have  been  gi„n  fur.h     f  """'  """"'''"S  ones 
been  fii.ed  for  the  more  skilfed  Lks       1 ''""""'  ""''  ''-'  'bus 
made,  however,  to  train  fo,  ,h,f;';-;^  ,  "    JP^'al  efTon  has  been 

had  some  previous  mechanical  exp  rt    r"'"  """"^  -ho  have 
'  ne  trainini;  c  yen  tr,  tt,. 

by  the  firms  w'hi^h  e^  ^    t^er,"  1^  d^"'^^'  -"^'^  -« 

'he  s.tuat,on  i„  .He  smallL  possi    ."    *"  ^^^^  "^  "^"'^  "^ 

J?;V-''""-'.u-„edi„Dr,f,,       .  ^he  shor.  period  of 

*/w</.,'p.  10.  ■ 


li  i 


158  URITISU    LABOR   CONDITION?    AND   LEGISLATION 

training  inttniled  to  fit  a  woman  (or  shell  making  <lo«  not,  o« 
course,  suffice  when  she  is  intended  for  general  cngmeermg  work. 
But  the  purpose  of  even  the  longer  training  is  not  to  turn  out  all 
around  skill.  On  the  contrary,  women  are  trained  to  one  type 
of  machine,  which  they  are  taught  to  set  up  accurately  as  well  as 
work,  (ienerally  alwut  six  weeks  instruction  is  necessary  for 
this  kind  of  work.  ,    .     i  i 

Women  with  a  good  general  education  are  mostly  in  demand 
and  profit  most  l.y  this  system  of  education.  Several  of  the 
schools  allow  from  l.'-.s.  to  ar.s.  per  week  to  each  woman  who 
takes  the  training  course.  The  Ministry  of  Munitions,  in  order 
to  help  firms  who  desire  to  improve  the  efficiency  of  their  women 
workers,  lends  the  services  of  demonstrator-operatives,  women 
who  are  ext>erienced  in  such  work  as  machine  operating,  turning, 
drilling,  tool  setting,  bench  fitting,  oxyacetylene  welding,  etc. 
These  women  are  sent  to  a  factory  to  demonstrate  to  the  women 
what  can  be  done.  The  Ministry  is  also  ready  to  supply  a 
nucleus  of  women  workers  to  any  firm  which  has  dift.culty  m 
starting  women  in  a  new  shop  or  new  type  of  work.  This 
nucleus  of  trained  workers  remains  permanently  in  the  employ- 
ment of  the  firm.' 

The  experiments  made  during  the  year  1915  to  utilize  women 
to  do  work  which  hitherto  had  been  done  by  men  did  little  more 
than  show  the  possibilities  of  such  substitution.  The  continued 
withdrawal  of  men  for  military  service  and  the  need  of  larger 
and  larger  quantities  of  munitions  soon  left  no  other  alternative 
than  to  make  the  fullest  possible  use  of  women  in  the  manu- 
facturing establishments. 

Government  Urges  Further  Dilution 

Following  the  appeal  made  by  the  Minister  of  Munitions  to 
the  trade  unionists  to  permit  dilution,  the  Home  Secretary  and 
the  President  of  the  Board  of  Trade  early  in  1916  called  the 
attention  of  employers  in  the  manufacturing  industries  to  the 
situation  created  by  the  continual  withdrawal  of  male  labor  for 

»  Kirkaldy,  Industry  md  Fi'mct,  pp.  68-72. 


TBI!  DILUTIov  n»   ,  .- 
•"  "^^       ine  appt.l 

"•""•"ncc  of  „„.  ,„„„,"'  7-"? '"  '"■'"»  Ihoso  who  ?,    V,  '■  '"■"""  '<""■ 

"«mi.,,.  „.„„  „^  ,,,",^7 '" "» cri.,,.  (■„..,„„:;,;;"."■  -"■- ...  .he 

women,  whclher  in  Hi        '  '^.""'''''  '■*'•"  .■>  mam  I,    i.         '  '•"""T.r,,,.,  ,,, 

1  he  (Tni-.... . 


•J.,  " '  "'  nil  work."  

"le  government  promiserl  ,0    ■ 

some  d,fl,cuU,es  in  arranging  for'    f-  ""P'<'>'''-  "'""W  have 

s.ver~'-'-"cei„.ri„gi„,,^,,,,^„^^^^^ 
'^'""•C""",  1916,  p.  83. 


!&', 


u;  (. 


11 


160  BRITISH    LABOR  CONDITIONS   AND   .ECSLATION 

':  ""V°ntrof  mr  a  bo  k    nlitled  No<«  o»  •'■^  E- 

women  performing  these  proc  sses,      Emptoy 
employed. 

K,n    P„OPOBTION    OF   WoMEN    EMPLOYED   IN    MUNI- 
NUMBERS    AND    I'ROPOBTIUIV    ut 

TIONSWORK 

„,1  n.hers  dilution  proceeded  so  successfully 

1916,  p. :;. 


^"^   "'LUTION   OF   LABOR  ,,, 

the  following  were  the  number  an,l  „. 

P'oyed  in  .he  manufacture  of  L'nllio'nT"'""  °'  '^"""^  - 

Group  Total  Xumber    Per«ntagtof 

National  shtll  factories  ....  Employes  EmnhL 

National  filling  factories  5.',0OO  4^, 

N..;o„ayactories    t,i,,   eMo;i;es '  ai;,  ^  ;^;    "■"«> 

2.500  40 

3,934  of  which  reported  in  V,t  T'™"'''  "''"''i^hnient.s," 
l.rS2,381  persons,'of  whom  21  "r  '  ''"''  ''"'  ^-"P'^vinR 
"per  cent  were  boys  it  f«^  .rrsTf'  aTe"  '^™'"  ^"■'  °- 

"o  later  figures  arfavlrwZf^:  '"'''''='",  f^^^ '''''■°"^'> 
just  given.  The  Labour  Ga-Z't  '^""'""^'''''^  «i'l'  those 
employment  of  women  du^'^hfirTr'""  ""=  ^^'™^'°"  "^ 
reported  that  while  "the  number    f  "  ^'"'  °'  ""^  «ar 

munitions  can  not  be  sL^^,!  °f  '""'"'"  ^"'^^g^''  '"  making 
«ro,000  are  employed  on  mun"o^  "  ^  '"''""'  "'■^'  »•»"' 
engaged  in  othe.!  governmenT:'  "su^h  t  tl""  "T'"""  ^^^ 
clothing  and  food  for  the  troops  "»  manufacture  of 

;:a^%rwtom  ir;:^o«T5r  ;;;rrr  --^  --■-' 

1917,  and  while  no.  all  of  LI  '  '"  "'•'■""*'  "'  J"b. 

manufacture  of  mu^U^ns  he  r'"'"  ""'  ^^^'^^'^  '"  "^' 
Furthermore,  these  figure"  did  n  T'T"!  ''"'  ""  ^'"^'"y-d- 
establishments,  where^^' ono  "  1:"'""'^  '^''^■^'■"'"™'  o-ed 
^"'r.ascompared  to  2.000^,1  r:b:i"r'''°>-^''  ■"  J-^. 


162  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

.Mr  H  W.  Garrod  of  the  Special  Mission  from  the  British 
Ministry  of  Munitions  to  the  Unite'd  States  in  November,  1917 
reported  that  SO  per  cent  of  the  '""ni"""^  «"[\,7^^,  „"'  ™ 
ti,;e  heing  carried  on  by  women."  Since  March  ^  .  19".  »» 
contracts  for  shells  have  been  let  on  the  condition  tha  80  per 
cent  of  the  employes  must  be  women  when  work  on  shells  from 
,„o  and  three-quarters  to  four  and  one-half  inches  ,s  being 
performe.l,  and  on  larger  shells  the  instructions  of  the  Labor 
Suppl,  Department  as  to  the  proportion  of  women  ^^^^""■ 
ski' ll.i  male  lalx.r  must  be  followed.'  In  .Xpnl,  1»18,  Mr 
VXinston  Churchill  said  that  7SO.O0O  women  werr  employed  in 
the  Unush  munitions  factories  and  that  Wl  per  cent  ot  the  work 
was  performed  liy  them. 


If 

li  '. 
\  i 
\i  I 


Employment  of  Women  in  Nonmunitions  Work 
Durine  the  first  two  years  of  the  war.  sovemtncn-  efforts  to 
dilute  labor  were  mainly  limited  to  the  mun«..n  industr-^ 
akhough  bv  .March.  V,VK  as  we  have  observed,  an  *Pf«  «»^ 
issued  to  manufacturers  by  the  Home  Secretary  and  tl«:  Presiden 
of  the  Boacd  of  Trade  to  take  concerted  action  in  the  way  ot 
l„ring  ■'  won«m  unoccupied  or  engaged  only  in  work  not  ot  an 
e^ntial  character"  to  make  good  ''the  loss  of  labor  caused 
bv  withdrawal  of  men  for  the  forces."  '  ,    •    .,  ,,-1, 

'  The  Treasury  agreement  with  the  trade  unions  made  in  March. 
iyl5.  provided  for  dilution  of  labor  in  connection  w'th  pro- 
duction for  war  purposes  only,  and  the  sections  of  the  Mumt.on 
Nets  of  11.15  and  1910  which  deal  with  dilution  likewise  relate 
only  to  the  manufacture  of  munitions,  though,  as  we  have  seen. 
I'term  munitions  was  given  a  very  broad  interpretation  by 
the  appeal  tribunal.  Such  increase  in  the  employment  of 
,v...Hras  took  place  in  other  than  the  munitions  industries 
during  the  first  two  years  of  the  war  was  ma.le  with  govern- 

isCd  by  Carnegie  Endowmmt  for  International  PraM,  WW) 
'  IM.,  p.  54. 
'  Labour  Ga:cll€,  1916,  p.  83. 


".E    DILUT.O.V   OF   MBOR 

^"^^-      In  those  indus.  nes  T  lu    T"'"  "'«^««'  ™  "- 

organised,  dilution  .ookpelu'v."'  ''T'  ""^'  -" 
'nade  by  employers  with  the  "no  ,'  %l  "''"'  "^  '•"^-oements 

frequently  called  a.  the  request  of  r\  '^'  ™"'"enccs  were 
"■at  as  „,any  „,e„  as  po  sib  t  r  l^rf  ^""T'  """^'^  --^"^ 
'"-fat,ve  was  usually  taken  bv  Z   u  '  ""^  ^™V      The 

.nspectors  participate',  in  the  o  re"::"  l^T"'  ?°-^^-  ^^"->- 
agreements  to  allow  women  to  unler.rke  Tf'u"  ''"  '»'"' 
on  by  men  were  ma,Ie  in  the  cotton   h  "T    '""^"'"  "^'^d 

^"rs.e,l,  silk  and  felt  hat  prin^^'d^'r-^-  ""''•  """'"'  -^^ 
working,  biscuit,  pastry  bakir/who  i^  ^"  '"''  ''^•^'"*^-  ""«!■ 
earthenware  an.l    hina  .racks     n  '  ''""'"*-'  '»'"  '"akmg 

"men's  work"  during  U,e  w  ""7".  T"''  '"'  ™P''-«'  "" 
who  had  left  these  indLre,u,mde?:""'v'^"''  """  '"e  men 
have  their  places  kept  open  for  th'T-''^'^  ""•'«■  ^'"""" 
were  to  be  employed  only  „„  wo  k  I '7  7  "'""'•  ^^''-en 
fit  to  perform  "  and  were  to  be  paid  ,  ""'  ''"'  ""-'""v 

had  been  paid  to  men  when  ner^o  1  '"™"  "'^^  "''  "'^^-^^  ^s 
Portant  item  in  the  agreemen  ^  h"f  """'"  "■"^'^-  ^"  ™- 
^ather  industry  w-astha,rilca'r  ""'  ""  ""'""  ''"  'he 
be  consulted  whenever  i,  wa  h  T  ","'""  "'^^'^'^  ""^^e  to 
women  for  men.=  '  """"^'^'  ■^''^'•'^able  ,„  substitute 

war  and   it  was  thereteTaTr^    thaT  '"'  ""  ™"""-^^  -"  "'^ 

—re-- the  «rs.  shock  Jir ::;:-,.::-- 

'Annual  Report  of  if,«  r;,;„f  t 
p    ,  ot  (he  Chief  Inspector  of  R^c^ones  an,t  ir    <    . 


i 


jKai. 


ii 


104  BRITISH    LA«>1.    CONDITIONS    .ND    LEOlSLATiON 

„    1  nf  ..r«at  activity  th.v  .hot.ld  have  added  tu  the  numl«r 
a  period  ot  graat  attivuy  u  ami  lulv.  I'JlS. 

ot  women  en^ployes.    Between  Dece.t.ber.    '  »•  »^    ^^^  ^„  „ 

„un.tions  .ndustne^  hecan.e  s.ry  martc«>._       ^  ^^ „„„^„„, 
slight  tncrease  ,n  the  number  o>   ^vome.  ^^^  ^^^^ 

trades  during  the  year  -="'""8  J"'>;     '  1";    "^^,„,^/,(  ,™„en 

^«>7--^"7-:":r  ;^:r  m  t:i^::;.en,icaHrades. 

employed  m  mdustrR.  other  'h-m  i  ^^^^^  ^j^^ 

The  decrease  was  greatest  m  'l^^'^"'",    ™    ,]^^    ,es    n  which 
clothing  trades   (U.im<)r  precselv   tho..   mdustnc. 
;o,ne,fhave  normally  l.een  n,.^  '^■j^^,^-^;™',,,  „,„„,,  ,„ 
It  was  thought  at  the  time  that  the  .leclnu       me 

r:,ut;;rr =;:::.-."■ -- 


1  totoBi-  Gazelle.  1917,  p.  395. 
>  Ibid:  P-  125. 
•  /WJ.,  p.  275. 


THE    DrtL'TION    OF    LABO» 

country  af  which  thns,  „,  1*! 

I    "';  -^sn,u,e  .vo„„  C:::' .^r""  -  ""  ever^hin,  po,,,,, 
in  the  railway  ser^ ,,-.  .1,       ■ 

ec.„rs.  carriage  and  er.f,„e  ele'ner  '^'^'•'^'  ''■'  "'■'<^'  <-ol- 

he  shops.     On  .he  tra«,.aj     ,f    "k  T""'  *""  «'  'a(.„rers    n 

for  some  time  heen  empUe,  .  '  '''«^  "'"^  —"en  hi  " 

-;nvers.     They  are  a  :'  1  :,f  p'  -""---rs  and   .Z 

of  the  mnnicipal  service,  as  in  ;;tZ^'^^"  '"  ""-  "-n-he^ 
«nd  .n  r„ad  cleaning.  l„  I'  "  "'•'""•''■  K-^s  u-,rk..  {„  ^^.^ 
empoymen,  „f  „,„„f„  j"  '^     «.,vernmen,  p„,,„   ^^,    P"'^^; 

.     Con.s„|erable  sul,st,tu,ion  nf  '""'  •'<  'i"'  war. 

.n  grain   m,„i„g,   sugar     eHLr'T"  '"'  "'^"  "^  '••'^-  P^e 

Even  ,n  hudd.ng.  m,n,n,  a„    "f„a  r"'"^    '""   '"   ■^■■'"■"'■>^- 

numbers."-'    ^he  verv  novehv  of  "'      "'/'™'«-"velv    small 

""es.  .some  of  which  seem    "  ,:  K  ?,?       T'"^"""  '"  "- 

and  capacity,  has  d„„h,less  Jalll,  ""'  '"  ""^'^  '-''.Tacter 

dropping  off  from  processes    .,1  T'"^    '^  ^^'^"--    "  a  c,u  et 
;-™",-     The  main,.  TZ  ,'      ,;'';""  .P--'-"--  -laptah,  ' 
found  their  way  during  th^  1        T  ,'""    "*''^'^  -"«n  have 
"«nng  yards,   hla.st   furnace' ^^f'^  ""^   ""  —  e4 
spelter  construction  work  for  T,'      "^'   *'^-   ^ 'Kl-^r  work 
tr.cal  stations,  maintenance  wo  k'  ""'"'^"'"'  '-«'"  0  - 
occupations  in  hreweries      T  e  e..'"  ''"  ''"'^'  '""  '■"  certam 
bene  substituted   for  men        f  "f'  ':;  "■'^-''  "-  women  a" 

report,  which  mention,s  a  cemenwT  '""''"'"'  ""^  'his  same 
^vomen's  labor,  •■  ,he  „nK  ^'"'"  "'"  ■''''"ost  entirelv     ?■! 

neerc  ,„j  "'V  men  remaining  1    ■  •^"urcly  with 

"  '""  ™'^^>  Wlnmen,"  and  "a    aT.e  .'T  "'"'"^"'  -»?'■ 

'arge  tobacco  factory  i„ 


iaat«fr*-a.<ft 


iil 


166  BRITISH  LABOR  CONDITIONS  AND  LEGISLATION  • 

^hich  a  Staff  of  women  mechanics  do  the  running,  repairs,  oiling 

and  setting  all  the  machmes/'  ^j 

The  inspectors  report  ''^f  ^f ,    '^nlufficient  care  in  selec- 

«omen's  work  seem  to  be  1"«  °  J^^  '"J^^^^  needed;  (b) 
tion  of  appropr-ate  wome.^  for  the  kmd  oi  ^^^^  ^^^ 

■"-"^-"\r^ ffi'eroTfnTradl;  ustoming  them  to  new 
women  really  efficient,  or  m  graaua  y     „„,.  -..-ndine  in  adapt- 

and  heavy  work;  (c)  '^''^'^^XZ: l^^^'^  ^^^^^^ 
ing  and  organumg  to  women  ^  "«^^  ''^j'=  ^^„  „„,kers.  leading 
0.  work;  (d)  opposition  on  the  P"  ^  J^  ^„„„  i„ 

in  a  very  few  cases  to  f°-Tj"Zt.  said  to  be  the 
doing  or  learning  their  work.      The  "■■*'  '"^  ^ 
„a,n'hindrances  and  the  last  -nt-oned  the  leas  ^         ^^^^  ^^^^ 
The  Chief  Inspector's  report  ^a"*  »'—  j  ^„„,„ 

the  possibility  of  rapid  -<— "  f  ^.^^^^^n  'of  use  of  modem 

for  men  depends  in  large  degree  on  the  "'en'  °t 

plant,  machinery  and  labor  saving  appliances.     Fact 

^p  to  date  construction  and  '^l-P-;"'  ^,7J„'°""'4ce.     The 

been  employed.' 

Women  in  Agriculture 
..        .ff.rts  have  been  made  to  increase  the  employment  of 
,or;n1  nLre,  but  these  have  had  only  a  pani.  su«^ 
H  .e  are  to  i"''«e  by  the  o«.„a  e^m.es.    As  late  .^^^^^^^^  ^^  ^  • 
1916,  it  was  admitted  tha      '^^  P™K  j^^^^.^i,,  ,„d  com- 

no  way  commensurate  -  ^  'h^'  ^^^^^^^^  ^^  ,,  be  prejudice 

r^'p :::Ttr  arme'rrunce  on  the  part  of  the  w.men, 
rns^cfency  of  housing  accommodations  and  low  wages. 

'  Labour  Ga=Me.  1916.  P-  «'• 


THE   DILUTION   OF    LABOR  ,„ 

To  overcome  these  obstarl-c  , 
■nstituted  in  .he  spring  of,9  ,  bvZT"  °J  r^'^'""''  «« 
Board  of  Agriculture  Women's  con,""''  "^  ^""'  =•""  "^' 
mittees  were  formed  to  carTy  onT  ^  »ar  agricultural  corn- 
women  willing  to  undertake  farrwo.k  andT"'"'  '"  "'"'" 
them   on    the   land.      Sixtv  thr^.        u  "'^"^'^  '"  P'^ce 

formed  by  the  end  of  the'y  '  "lOiT  TT"''''  '''^  >>«" 
fum  worked  through  village'regis  rar!  Tnno  "'  '°"""'"«'  '" 
>ngs  were  held  to  aro«,e  emhl  ',     "  '"  '"""^'-    M«t- 

'h*  need  for  their  se^.ces  ThT"  •""  '"  "''''"  '"  --" 
house  to  house  canvass  and  tL  name Hf'.r"  ''"""'^  '^  ' 
to  work  whole  or  part  time  w^.  T  T  °"  *°'"'"  billing 
The  registrar  then  coojTe  ^^,7:1"^,  ^  '"^  -"aee  register' 
exchange  in  endeavoring  to  ^7  I  ™""'  '"'P'oyment 
About  140,000  women  r^isLd^'"""'  T'"""  °"   '^*  'and- 

an  could  ^  .„, .,,  thTrrnj;?/: rr'  ■^"^■•"'  ^"'  - 

a.Hcult::[r:T^-;;--;omen  were  engaged  in 
classes  of  work  with  eigh,  suWa  L       1  '°""''^  '"^'"^^  20 
and  five  under  gardenmg     The' T      °^'  «'"'"'  ^""^  ^ork 
that  while  the  experience  gailed  d"^""  T  "*"  "''"'""  claims 
women  "  can  do'^/.h "fand  Iver"?  ""  "^^  ^''"^^  "^at  some 
well,"  the  average 'womLt  use7:r:h',eT  "'  "?'  ^"^  "^  '' 
occupations:  general    tarm   work    m  ,ktf ''  'V'''  ^°"°"'"S 
rearing,   butter  msKing,   chees^mr     ^^  ""'''  '""'^'"'S  and 
making,  fruit  picking, tpptki'tT'   "r"'""  ^^='""?'   ''ay 
'aid  to  be  especially%uccess  ul  Tn  rt^    "'"^-     ■"'^^^  -^- 
rearing  stock.'     m  a  few  ca" L  "  o   '      f  ^^  '"  '^""'"^  and 
courses  of  training  in  mirking'^ererTrfarm'  '7  ^'■""  ^'^-' 
mg  and  one  of  the  notable  succes  J.  T"'''  ^"''  garden- 

having  "organised  gangs  of  woml:  "T''"  ""'  "'^  P'^"  °f 
who  visited  farms  in  roution  unTer;^:"  "I.""""  '  '"^cr, 
rates."  ■  ^"°"'  ""dertaking  jobs  at  piece  work 

The  efforts  made  during  the  year  I'lic  ,        u 
for  men  on  the  farms  were  gene  a  Iv  h  M  °  '"'''"""'=  -""^n 
England,  especially   in  the  easte  n    '  H        '"  "'  '"^"^f"'  '" 
■^*-r<7„.-.,„,„„  ,  ^    '"''""  ^"'f  southeastern  counties, 


^m 


168  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

where  a  considerable  increase  in  the  number  of  women  eng»ged 
in  farm  work  at  the  beginning  of  the  war  was  shown.  In  Scot- 
land and  Wales,  however,  the  efforts  were  not  sufficient  to  pre- 
vent an  absolute  decline  in  the  number  of  women  engaipxl  in 
agriculture,  owmg  to  il.c  migration  of  women  to  munition  estab- 
lishments and  other  places  of  work  where  higher  wages  were 
oflfered.'  . 

Further  efiforts  to  increase  the  number  of  women  engaged  m 
agricultural  occupations  took  place  during  UUT,  but  they  do  not 
appear  to  have  been  generally  successful,  if  we  are  to  juilRe 
by  the  figures  given,  which  show  that  there  was  an  incrca>c  ihir- 
ing  the  year  ending  July,  1917,  of  w  y  !.'»C0  women  employed 
as  permanent  laborers,  while  anK>r.^  \vunic,i  emplo>«l  as  casnai 
laborers  there  was  an  actual  clccrc  e.  The  nee<l  of  women  lor 
munition  plants  and  in  imlustry  a.id  commerce,  generally,  had 
become  so  urgent  and  th^-  inducements  offered  were  so  much 
greater  than  tK^se  offered  on  the  farms  that  relatively  few 
women  were  attracted  to  the  latter. 

Statistics  of  Extension  of  Employment  of  Women 

The  following  table  shows  the  effect  of  the  first  three  and 
one  half  years  of  the  war  m  extending  the  employment  of 
women  in  the  various  occupational  groups  in  Great  Britain,  as 
far  as  this  can  be  shown  by  oftScial  estimates.  No  estimates 
were  prepared  for  the  year  e^wiing  July,  1915.  and  comparison 
must  therefore  be  limited  to  the  rate  of  growth  between  July, 
191B,  and  July,  191T,  as  compared  to  the  two  year  period  ending 
in  July,  1916. 

1  Labour  Gaietli,  Wft,  p.  •MS. 


THE 


""•UTIOK   OF   LABOR 


16» 


■r 


I      I  tl§i  i   I      SSI8S 


■^•^■•OIN        (^ 


I! 


„0  BRITISH    LA«,«   CONDITIONS   AND   LEOISUAT.O« 

Women  in  these  esublishments  are  of  course  aim 
employed  on  war  work.  manufacturing 

The  table  does  not  reveal  "«  '="=  ™'  '"J^  ;„  jhe  numbers 
industries  under  private  ''"-"'I'P '"'  "  "he  munitions 
of  women  employed  has  also  ^;"  "'^^'„>'  '^.,;  ^hj^h  show 
establishments.  Figures  have  ^^'^^^^J^^'^^^.^  „tablish- 
the  number  of  women  '-P'^y""  '"  '"^^.^^ "h  number  of 
ments"  early  in  1017  and  also  'h'  '"^r"'   "  „„,^  „f 

women  employed  in  the  metal  ""^  che"'"  '  ^^^,  these 
whom  are  employed  in  makmg  7^,'°"  the  nur^l^r  of  women 
latter  from  our  calculat  ons  ^'f^^'^;  ;,';,",;  112.OOO- 
'^'''^^^^0::^uZlS^^^^     NeU  an  this 

::-:^^^a::u^.j..------ 

rr  e^';^ye;  t^  :— -  gr^p  has  bare,  main- 
""xfuWe'shows  that  in  commercial  occupat.ons  in  the  pro- 
fes'io'ns  and  in  the  local  «--XTS  -X  S^c 

^=HHHH5^Cir^d^ 

T  ndt  alricuUure  casual  lab^r  in  agriculture  showmg  an 
places  and  m  agriculture.  increase,  or 

actual  decline.  To  some  «'"  ; ''^^^trs/ne"  demand  for  the 
even  decline,  in  """•«"  •"^''^;;,:,'^ J  "e  demand  for  luxuries, 
CiranlTuTirth:  mai:  fttobably  means  that  the  demand 

had  btcn  an  actual  decrease  ^n  '^^  .^j,  ;„  ,he  cotton  «»"«  as  a 
munition  industries.  7J'^'/matrT.als  but  in  all  the  principal  <."''«  *'!?'5 
l'i'tj:.!.t^'£^  U:^^^^olr.  .917,  wa,  i«s  than  during  the  P«.od 
April-July,  1917. 


THE   nitUTION   or   tABOR  ,,, 

f'.r  women's  lahor  in  the  "  essmd,!  •■     ,■ 

i"»r  directly  to  war  „e,.*  "  sll  J"''"^'^'"'  "■-  minister- 
•upply  of  fer^ale  labor  Te  la,: fi""  ^'""''^  "''-^''-K  '"« 
January,    1918,    furnish     '„        "'^"''^  "™"»'''<^.  'hose  for 

't^howsthatwhSeVha  t:r°"'''  ""'  "^'""""'  ">' 
number  of  women  employes  t  ,11  1""""  '"  ■*•"""  '"  "" 
quarter  Octol«r  to  lanuarvfh.  "«"Pat...ns    ,lur,nK    the 

industrial  establishments  ';?„:"„"'""  r"  ^""«-' '"  l-ivate 
occupa...„s.  to  the  c  vi '  Lr  "e  and"t  ^">  '"  "'"--''" 
government  authorities      XuoL  '"''""""  ""''"  '°<^'" 

«  best  a  stationary  conditJon  ofaffa^^r"^  ^""^^  =•  ''««-  or 

SOU.CE.S   or  S..P.V   roR   WOMHN-    VVopx^s 

-nent  of  women  in  indus"rv  an  i  1  ''  ""  '""'='"•'  '"-Ploy- 
as  to  the  source  of  sup  J  of  the  '  '"'"'""  '^^  ''«"  ™1' 
Wular  imagination  there  h' eh  """'"  "■°"'""  ^°  "« 
duchesses  and  other  lid  „,  .  w  T'"""  "^  ««"^-  "^ 
in  the  munition  factories  or  L„  T  "*"  "'""'"«  '^'  ''-"he^ 
endless  rows  of  shells  '^  ""'^  "'^  ''"'">■  ^^-T  into  the 

oHc-^l^ir^^.erc;':,-:';:::;^^^  T'''°-"'  °^  p-<- 

Great  Britain,  but  they  have  nrtf';"'^'""  ""'  ''^  '""""  in 
of  the  war  labor  supj^y.'  vC  '  f""^"  ^"important  source 
and  dependent,  whoily  or  LrTil Hv  n ''"'"\  *"  '"^""^'  ^"^^ 
maintenance  have  furnished  X^e'at  bl^t  T^'  '"'  "'^- 
wh,ch  has  been  drawn  into  industry  a,  a  reLt    ft  ''"'"''  '^""^ 

----rmalesu-::^r:-j;^--usba£ 


»«c»oeopy  nsouniON  mi  c 

(ANSi  ond  ISO  TEST  CHMI  No.  ; 


1.0 


I.I 


11^  11^  I 


1.8 


1.6 


TIPPLED  IM/IGE    In. 


IS53   Eail   Mom  Stiw 


(716)   2Ba-S999^Fo. 


172  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

service  Others  have  been  attracted  to  industry  by  the  high 
wiges  paid,  by  the  increase  in  the  cost  of  living  and.  m  some 
cases  for  patriotic  reasons.  ,  ,  j  ., 

n  a  report  ma.le  by  the  Standing  Joint  Committee  of  Indus- 
trial  Wot^en's  Organisations  to  the  Joint  Committee  on  Labor 
P  oblems  After  the  War,  the  increase  in  the  number  of  women 
«^nloyed  in  July,  IftlB,  over  the  estimated  number  employed 
Tlulv  1014  is  put  at  806,000,  of  whom  +62,000  were  absorbed 
;;  d^s  y,  irai^ort  and  government  work  alone.'  The  report 
offers  the'following  succinct  statement  as  to  the  sources  from 
which  this  increased  number  of  employed  women  has  been 
drawn : 

''ir=  ts"sr.r.rr,,r:. ...» ., ...— 

small  employers  on  their  own  account,  etc.  ^^._^.       .__ 

J>  Jt  :rU  :;^r  .^^rr  ^U  .om  scHooI  ....  com. 
'"r4?M"ri::wrer  widows.  e,c..  have  .turned  to  employment  in  Ur,e 

circumstances  not  have  become  wage  earners. 

No  reliable  estimate  can  be  made  as  to  the  number  of  women 
employed  that  has  come  from  each  of  the  above  classes,  but  a 
stTtistxal  analysis  has  been  made  of  .he  P"-'  °"7"  ^  °^ 
444  137  female  workers  (iiSC-lTO  women  and  63  667  girl  )  to 
whom  unemployment  books  had  been  issued  up  to  J''-^'  «f; 
Ider  the  National  Insurance  (Part  II)  M""">°"  Workers  Act 
of  1910,  an,l  who  had  stated  their  occupations  definitely  enough 
to  mak;  a  tabulation  possible.  This  analysis  shows  cl  arly 
enouRh  the  extent  to  which  munition  workers  have  come  from 
othr  industries  and  the  extent  to  which  they  are  made  up  of 
women  and  girls  not  previously  employed  in  gainful  occupations. 

■  These  are  the  Board  ol  Trade  estimates. 


I 


THE  DILUTION   OF  LABOR 


178 


Occupations  in  January,  1917 

Metal 

Same  trade   '"'Z';^ ' '", t;!"'  ^"'''    ' "".,  SX" 

Household    duties    and    no!    pr'evi:        "      "'"^  ''''"    ^"'^^  '^«^8 

ously  occupied  18,927      52,407  9.334    VW  98S1I 

Textile  trades ijns       r.,,A  -Tjl  '    ' 

Clothing  trades   jfiu  nnn  oTin  o,„.  ' 

n.u         J                      '*.ojj  l/.yil  8,430  8787  10701 

Other  iridustnes  ,2.458  20.879  5.745  10  065  49  M7 

Domestic  service       12.502  44.438  4,970  12  062  73  992 

Other  non-uidustrial  occupations,.  5,449  17,079  3.643  4977  51148 

'^°"""="'"»  ""."S  W.604  71.378  88:527  444:i37 

J)K  Labour  Cas.tu,'  which  publishes  the  atove  figures  ofters 
the  following  comment  upon  their  character  and  significance: 

Subtracting  the  number  of  persons  who  have  remained  in  the  same  trade  i. 
will  be  seen  that  the  table  accounts  for  nearly  308.000  persons  who  have 
changed  their  occupations.  In  July,  1917  (the  latent  ,h,.  fn,  1,  1.  i 
are  a  Hable,  the  number  of  wUn  drawi'ln.o'mdurria  ^o^'.'tint;" 
term  to  include  government  establishments,  was  720,000,  or  rather  mo  "than 
double  the  number  drawn  into  .he  trades  here  considered,  Th  p  o^or ton  o" 
the  total  increase  covered  by  these  figures  is  therefore  sufficient  ylarrfor 
20lTco:.l'd  h"  "  "'"':^r^  ^"--^  *«  *e  wh„,e  of  :h  „  rea «  o 
720.000  ould  be  accounted  for  in  the  same  manner  as  the  increase  analysed 
above,  „  „„„M  mean  that  it  was  made  up  of  231.000  women  and  gfr"s  who 
wert  previously  unoccupied,  173,000  who  were  domestic  .servants,  243  TO  who 
c  me  from  other  industries,  including  93,000  from  the  clothing  trades  and 
73,000  from  non-industrial  occupations  other  ihan  domestic  service  These 
figures  can.  of  course,  only  be  taken  as  a  rough  mdication  of  ,he  change  ,« 

sid:;at",:'r«t."" '"''  ™" "-  ^"*"='-"'-  --  "■-  -"■  -  -= «'  - 

.h.?!.,'''"  ""l'  ""  """"'.  """""  ''"'  ''"  "  '"''=  ""  "<"  ''^  '»1<™  •<>  indicate 
that  the  numbers  employed  have  decreased  by  an  equal  amount,  as  the  I 
tr.ides  ,„  their  turn  have  drawn  in  workers  from  the  outside.  Thu  in  Tanu 
al'a  whole'  I'  '' 1°  "'f  '""'  '"""  '""■  '""'"^  '^^  *«>-.  trn^s 
3-.000.  whereas  ,t  appears  from  the  above  table  that  the  newly  insured  alone 
heret:r"h,'"  "f"^  *'T  '->'"  <">-  '"e  clothing  trades,  which  mus 
he  efore  have  found  at  least  8,000  workers  from  outside      In  the  textile 

trades  had  increased  the  number  of  female  employes  by  25,000. 

•  1917,  p.  438. 


174  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

A  discussion  of  the  sources  of  female  labor  capable  of  sub- 
stituting directly  or  indirectly  for  male  labor  withdrawn  for 
military  service  inevitably  raises  the  query  as  to  the  extent  of 
this  supply.  How  many  women  are  still  available  for  employ- 
ment in  the  essential  industries? 

No  exact  answer  to  this  ijuestion  can.  of  course,  be  given. 
The  Board  of  Trade  estimated  in  July,  1«16,  when  806,000 
women  had  already  been  added  to  industry,  that  there  were  still 
over  a  million  and  a  half  women  who  had  had  industrial  or 
commercial  experience  and  who  might  be  used  to  take  the  place 
of  men.  Up  to  October,  IDIT,  .'J00,000  more  women  had  found 
employment,  which  would  indicate  that  there  were  then  probably 
less  than  a  million  of  women  who  have  had  industrial  or  com- 
mercial experience,  but  who  were  at  the  time  not  in  any  wage 
earning  occupations.  But  this,  as  has  been  pointed  out,  is  not 
equivalent  to  saying  that  these  women  are  to  any  large  extent 
now  available  for  industrial  purposes.  Most  of  them  are  over 
35  years  of  age  and  probably  most  of  them  are  married. 

It  must  be  realized  that,  although  these  women  may  not  be  working  for 
wages,  they  arc  usually  working,  and  working  very  hard,  too,  in  keeping 
their  homes  and  looking  after  their  children.  To  take  such  women  mto 
industry  will  not  be  a  national  advantage.  U  the  homes  are  to  be  kept  so 
that  the  rest  of  the  workers  and  the  children  may  be  properly  cared  for  it  is 
neccssarv  that  somelody  give  their  energy  and  time  to  the  task.  Already 
many  women  have  had  to  find  substitutes  to  do  the  work  of  their  homes, 
and  many  are  also  acting  as  the  unpaid  substitutes  for  domestic  servants.' 

Some  evidence  of  a  shortage  of  female  labor  was  revealed  in 
the  latter  part  of  1910  and  the  first  part  of  1917,  when  the  num- 
ber of  women  remaining  on  the  registers  of  the  employment 
exchanges  at  the  end  ot  the  month  showed  a  tendency  to  decline 
and  when  employers  in  the  textile,  clothing  and  other  trades 
making  large  use  of  female  labor  reported  a  shortage.  This  was 
at  first  thought  to  be  due  to  a  transference  from  these  industries 
to  "  munition  work  or  other  better  paid  occupations,"  =  but  the 

>  Report  of  the  Standing  Joint  Committee  of  Industrial  Women's  Organi- 
zations presented  to  the  Joint  Committee  on  Labor  Problems  After  the  War. 
a  Labour  Gazette,  1916,  pp.  8,  126. 


!"!' 


THE    DILUTION    OF    LABOR  j-, 

experience  of  the  latter  half  r,f  101- ,1,         j     t 

;;.,..i™  .n.  «^  „  ?i:,',',;;;  ,;xj:i' :,h';ix 
1".:- -rr- t;  ;;.r.:r"  -  "■• » ■  *-  ""' 

government  establishments  f3  500^  .tT:  ,'■'•""">  ""(i  '" 
number  of  males  employ  d,"s!  he  Ga-^n  'l'  f  '"  '"^ 
spicuously  small,  probabfy  owin/lag,y'^^~l'' „;'","""  ""j 
men  returning  from  the  forces"-  "'""atement  of 

From  such  evidence  as  is  availaMo  u 
if  the  continued  dem/  ■  foV  Ubo     in  IT™' '  ""''""  "^^  ^^ 
would  have  to  be  se.         7.    f  V     "'""'"°"  '"''"^"■'" 

from  the  less  ess ent  Urid  s  n  1  Z'^'f  ^  '"T'  "'  '^""^ 
released  from  the  army  becteTf'  th^eir^^dilSf  "^^  °'  ™" 

iMoBiLiTY  OF  Women's  Labor 

The  shifting  of  women  from  one  industrv  to  :.n„,^      ,. 

requently,  though  not  always,  meant  a     ans    rence  o    re   H 

from  one  part  of  the  kingdom  to  another.    S    h  "ran  f      ef"" 

the  war  was  hard  to  bring  about,  as  female  labor  l^ ^ugh^:: 

'Md.,p.2l6. 


li  i 


176  BRITISH    LABOR   CONDITIONS   AND   .-EG  oLATION 

be  especially  immobile.  Domestic  ties,  of  course,  made  it  diffi- 
cult for  taany  women  to  move,  but  even  in  the  case  of  women 
without  strong  domestic  ties  there  were  two  obstacles  which 
stood  in  the  way  whenever  the  labor  exchanges  undertook  to 
make  such  transfers.    These  obstacles  were ; 

(1)  The  low  wages  which  made  it  difficult  for  women  to  support  them- 
selves while  away  from  home,  and  .        *  ,1,. 

(2)  The  "lack  of  a  compelling  motive  stroni!  enough  to  counteract  the 
working  woman's  natural  distrust  of  new  conditions  of  employment  amongst 
strange  surroundings."  ^ 

These  difficulties  largely  disaj  .red  during  the  war.  High 
wages  on  government  contract  work  and  economic  pressure 
combined  with  a  patriotic  desire  to  serve  the  country  by  engag- 
ing directly  in  the  manufacture  of  munitions  broke  down,  at  least 
for  the  time  being,  the  reluctance  of  many  women  to  leave  their 
homes  to  engage  in  work. 

Probably  most  of  the  transfers  of  women  made  by  the 
employment  exchanges  from  one  district  to  another  and  which 
rose  from  32,988  in  1914  to  100,003  in  1916'  do  not  indicate 
any  great  mobility.  They  oftentimes  mean  simply  that  women 
have  gone  from  one  village  to  another  at  no  great  distance  or 
from  one  district  in  London  to  another.  In  many  instances, 
however,  the  transfers  were  for  considerable  distances.  In  the 
earlier  days  of  the  war  women  went  from  the  pottery  districts 
to  silk  mills  in  the  neighboring  towns;  cotton  operatives  and  car- 
pet weavers  were  transferred  to  the  Yorkshire  woolen  mills; 
tailoresses  from  Cambridge.  Cardiff.  Belfast  and  elsewhere 
went  to  work  in  the  clothing  factories  of  Leeds. 

tn  the  West  Midlands  district  alone,  where  before  the  war  the  migration 
of  industrial  women  was  practically  unknown,  over  4.000  women  were  dur- 
ing 1915  placed  by  the  employment  exchanges  in  employment  away  from  their 
own  districts,  the  greater  number  on  munitions  work,  and  others  as  artificial 
silk  workers,  rubber  workers,  chocolate  makers,  farm  hands  and  as  substitutes 
for  men  in  various  kinds  of  work. 

fn  the  great  majority  of  cases  the  occupations  were  entirely  new  to  the 

'  Uhour  Gazelln.  1918.  pp.  92-93. 
2  Later  figures  not  available. 


II 


THE    DILITION-   OF   LABOR  j,- 

".illi„.ry.  sLopwork,  uJnT.-.t'Z^''''  ,""""'  """"«'  '™'<  ■"»■<"•« 

Similarly,  ^uch  useful   work  wa    L         ,"'    'V""-    "'^""'"'s. 
by  .he  e,eha„«„  ,„  .ra„,fo      .s",,;    "7  '.f ''  ""V'"--  '"''  '""   -"-" 
fMsonal  re,,or„  „„  ,h,  ,^„  „  ^^    "''"''J"  "'^^  em,,l„,,n.nt  women    from 

■"  subsidiary  ,„du„ri«  in  fishTng  ,own,  '       ""'  "''  ""'"  "•"'"^"  '"""-i 

agriculture.  '"austnes,  ,n  munit.on  plants  and  .n 

in  munition  centefs  anr  J  poTS  1"  '"'X  ™''""^'"  "-'' 
their  recruiting  campaiirn  for  n^     v  "^'"^''■''"K"  '"  conduct 

areas  remote  fL  Z  fn.ers  „"  ri  Xr'  ""  '"  """-"'"--' 
were  made  to  women  in  the  "a  rn  a  "o uT,"  '''""'"  ■''''''' 
■n  Tyneside  towns  where  there  "s  I  ,  7"  "■'" '"""^  ^"'' 
take  up  work  in  munition  plats      Dt   in';:  "'  """'">-  '° 

;;"ary,  .917)  s.ns  women  from  some  f  T'  """"'"'  '^^''- 
d.s.r,cts  were  brought  into  eight  .argrm;;;-!:':";:;!' «''-^' 

^^^:.:srji,:ie:r^^;^:;:^;  re  r  sco.,an. ,.«,  .„.„  „„, 

clud,ng  228  from  ,wo  Tynes.deowV  alone   IT  '^  T"'"'  '">"-"■  i" 

tioL':n'rs:ti;tHTero::e::  "T""^"  ---'  "— 

arrangements  have  been "^deTor  hd  t^'"  '"  "-^  ""'  ''"^■- 
reception,  board,  lodging  and  eenern  '  'T''°'''"""'  ^"'  "'^'> 
mitted  for  work  in  natLal  ffcr  T  '""■  "  ^''"'"'"  '"^■ 
t-  before  they  leaveTm^a  :":":;,  r,  tr  '  '"'"''' 
01  their  journey,  women  are  fnllv      T        ,  '"^  proceeding 

^Labour  Gazette,  1917,  p.  93 


!l 


.n 


178  BRITISH    LABOB    CONDITIONS    AND    LEGISLATION 

txcliange  at  the  other  end,  and  the  nature  and  approximate  cost 
of  the  lodging  accommodation  available."  ' 

Replacemknt  of  Men  by  Women 
The  extent  to  which  the  extension  of  women's  employment 
during  the  w..r  has  meant  a  replacement  of  men  naturally  vanes 
in  the  different  industries  an.l  occu|.ational  groups.  In  the  muni- 
tions tra<les,  speaking  generally,  the  increase  in  the  munher  of 
women  has  meant  oftentimes  an  actual  .ncrease  m  the  number 
of  persons  employed,  although  there  has  l)een.  of  course,  juuch 
replacement.  "  In  the  metal  and  chemical  trades,  m  which  he 
volume  of  work  has  developed  enormously,  the  increase  m  tiic 
number  of  women  employed,"  says  the  Labow  Gazette:  is 
much  in  excess  of  the  numl)ers  replacing  men.  The  reverse  is 
true  for  all  other  industries;  that  is  to  say,  the  number  of  women 
employed  on  what  was  previously  regarded  as  women's  work  has 
declined,  and  the  increase  in  numbers  is  due  entirely  to  replace- 
ment." .  .      , 

The  extent  to  which  women  have  replaced  men  in  the  various 
industries  and  occupations  depends  largely  upon  the  interpreta- 
tion given  to  the  word  "  replacement."     During  the  hrst  two 
years  of  the  war,  in  manufacturing  industries  there  appears  to 
have  been  very  little  direct  replacement,  i.e.,  few  women  were 
employed  to  do  precisely  the  same  work  which  had  been  done  by 
men      The  reasons  are,  of  course,  not  hard  to  discover— lack 
of  training  in  the  skilled  trades  and  lack  of  physical  strength  in 
the  unskilled  ones.    Some  sort  of  reorganization  of  the  industry 
was  usually  necessary  to  allow  of  the  employment  of  women. 
In  the  munitions  trades  this  was  not  hard  to  bring  about,  for  the 
enormous  increase  in  output  permitted  a  splitting  up  of  the 
processes,  the   introduction   of   machinery   and   therefore   the 
conversion  of  work  which  had  required  the  services  of  the  highly 
skilled  machinist  into  repetition  work  requiring  little  judgment. 
In  shell  making,  for  example,  it  was  said  that 

^Labour  Gazelle,  1917,  p.  93. 
s  Ibid.,  p.  395. 


TIIK    DILUTIOM    OF    I.AnOR 


in   the 


The  worker  mm,  b.-  able  ,„  =,lj„„  ,he  .lull  ,„  i,,  riRh,  n„ 
lalhe,    1„   irai,i|,„lale   the    different    lever<   and    t..    a.,t,k.    ,L 
since  the  "stops"  are  all  arr.nn„e,l   („r  h.r    /  =I'I'I>    '^<^    K"'".'".      Hu, 

know  „hen  t„  ,t„p  a„„i,n„  a'^iii:;!:'  rzL::'::r"'T"  T 

">  l.f.  the  shell,  by  hnntl.  since  there  is  a  s.mple       r  ,     ,  cr  Z 

purpose  ailjacent  to  every  lathe.'  '    '"'  """ 

Conditions  were  somewhn,  .lilferent  in  other  than  the  en-ineer- 
-nR  ■n.h.Mnes,  hut   the  general   character  of   st,hs,it„,i,;;     ", 

eTi:!;'    "'"'=    ^^""'^-^    '='^''''    """■'-^    "f    ™    -re 
In  some  industries  replacetnent  was  made  easier  hv  a  shii,i„„ 
m  the  demand      In  the  tailorinR  tra.le.  for  example,    h ere  ? 

lessemnK  "i  the  tleman.l  for  hifih  gratle  clothes  re,,uiri,K.  ,k  iled 
male  labor  for  their  manufacture.     Many  men  w  n        o t 
and  others  undertook  to  practise  economy.     The  re      ,  l     t 
■ncreased  deman.i  for  military  clothing  an.l  lower  ,  r  c«l  ^a" 

<.iS^Xdl^rrr  tli^'r. ,;:;:'-'■ --- 

which  men  did  l.efore  the  war.  M::t.^J':;Z  Z' 
at  least  dunng  the  first  two  years  of  the  war.  were  to  1  foLnd 
m  other  than  the  manufacturing  intlustrics.  Rven  n  these 
ases.  although  the  work  .lone  hy  the  women  was  s,  bst  ntt  K 
h  satne  as  that  done  by  men.  changes  in  working  con.  i  iZ 
and  rules  had  sometimes  to  he  ma.le      On  ,h,.  ,.  '  """' 

-^Ple.  the  okl  rule  that  condu^s  aft2"s;rn  r;:^;:;.: 
must  .serve  as  drivers,  which  service  rcir  red  1'  ,l»  ■  , 
was  al^ndoned  when  women  were  enXed  a'c,'"  ^ctr""^' 
In  the  mumttons  trades,  in  which  the  agreement  with  thetrade 
untons  provide.!  for  dilution,  the  reorganlati,  .  ma.l  n C  ! 
by  the  employtnent  of  women  was  rea.lily  secure.l  by  the  gotern^ 
ment  s  deman.l  .ha.  .lilution  be  a.lopted  as  a  con.li.Ln  to  rece  :. 
ng  governtnen.  contracts.  In  other  in.histries  emplovershesi 
tated   o  tin  ertake  the  necessary  reorgani.anot,  for  a  number "f 

'  ft'«     P*"'  ill'""''  '''"'""  '"'■'  ""  »*■-■  PP-  H6-147. 
•/Wrf,  pp.  197-198. 


ISO  BRITISH    LADOR    CONDITIONS    AND    LtUISl-ATlON 

reasons:  unc.riainiy  as  I .  Low  long  the-  war  wouW  last,  imcer- 
a'mv  as  to  wlKtlKr  women  would  wan.  to  continue  >n  industry 
aiter  the  war.  unwillingness  to  (urnisl,  the  training  necessary 
reluctance  to  incur  the  expense  for  new  equipment,  and  the  fear 
of  opposition  from  trade  unions. 

Trade  Unions  Continue  to  Oppose  Dilution 

A,5  the  continuation  of  the  war  has  called  for  the  release  of 
more  men  for  military  service  the  g.^vernment  has  felt  obliged 
to  bring  pressure  upon  employers  in  the  nonmunif  m  trades 
to  attempt  dilution  and  with  this  end  in  view  ,t  preparer!  early 
in  in-  to  amend  the  Munitions  of  War  Acts  so  as  to  give  the 
irovernment  power  to  require  dilution  u-on  private  work.    The 
trade  union  opposition  to  this  pr,  ..ose.l  amendment  was  so  strong, 
however,  that  the  govt.nment  aband..ned  the  attempt,  but  has 
sought  to  accomplish  the  same  result  by  other  nieans      By  its 
plan  of  forbidding  the  employment  of  male  labor  of  milita-y 
age  to  m  vacancies  in  "the  restricted  trades,"  as  d  scribed  m 
the  last  chapter,  and  by  its  steady  withdrawal  of  men  for  military 
service  from  these  tra.les  it  has  forced  the  employers  to  lessen 
their  output  or  to  attempt  dilution. 

In  spite  of  the  Treasury  agreement  which  the  government 
made  with  the  representatives  of  the  leading  trade  unions  in 
March  1«1.-.,  and  in  spite  of  the  authority  conferred  upon  the 
"Ministry  of  Munitions  by  the  Munitions  of  War  Act,  trade 
union  opposition  to  the  policy  of  dilution  did  not  cease,  but  con- 
tinued to  embarrass  the  government  in  the  execution  of  its 
policy  Complaint  wa^chiefly  to  the  effect  that  employers  were 
not  consulting  with  workers  already  employed  in  their  shops 
when  they  desired  to  introduce  unskilled  or  female  labor,  in 
accordance  with  the  terms  of  Schedule  2  of  the  Munitions  of 
War  Act,  1915,  whicn  provides  among  other  things  that ; 

D«  notice  shall  be  given  to  the  workmen  concerned  wherever  practicable 
of  any  Chang  sof  working  conditions  which  i.  is  desired  '°  ■""<>-';'"  '^ 
.   result   of   the   establishment   becoming   a   controlled   esubhshmen,,   and 


THE    DILLTIIIN 


UK    l.-MliiK 


IM 


•ilh    workmen   „r   ,hcir    «|.rc,r„„„v.. 


"P|."rl,mi,y   („r  l,^,|  c„n,„l,a,i„„ 
•hill  t„  „,,„,  i(  ^„jrj^ 

this  pomt  the  Xlinistr     ,ss-,c,l   'n  O-,,,.'     v  ,  ■•"■  '''' 

circular  (L.i)    which  s.'t  f,r,h,-        *^'" ''"-•^'"■••™l'er.    Ii,!.-,,  .•, 

an  -p4er'p,wr<t  i  :S::;:r'"™"';'"'  ""™ 

'ishmen,.  „ «... .,««..., '^h:, t v  jr:: :: r ^r"'- 

commmec  .ppoin.e.l  l,y  „,  „,en  in  his  ,1      \, .,:,',," ','"  " 
trade  union  rcnrescntativ,-  -.n,l  ,  i .  •      ,       '  '"'  ""^^  ''"^■••>' 

bu.  .hecircniaf  wen"  ^.o ::';"""  """  ^™'™''  'f  P'-i'"^'. 

boards  were  also  esublished  rCir. ular  T  ,r>  -     ''"'°[ ''''"^"^y 
plovers  etc    anT  n  "      t  i ,  "'"'  '"'"'^  ""■""'  ™"  bv  em- 

j:f^ra.^:.::'L:;::::^ti^^:r- ------ 

agreement."  •-•-urnancc   with   the  Treasury 

Keep,.c  Reco«o.,  op  Dep.„.h,3  k„om  P«.w.«  p«.ct,ces 

Complaint  has  constantly  been  narV  h^  ,h 
™aph^o.Sch.ule.o,the^C;^„^-^^^^^ 


182  BRITISH    I.AUOR    tUNDlTloNS    ANI>    LEGISLATION 

.hall  b.  open  (or  .n.prction  by  .h.  au.huri.cl  r.pr.Knut.v.  ol  .he  govern- 
mtrt, 

ha,  not  been  observe.l  l,y  the  employers.    The  difficulty  her.  lie. 
laruely  with  the  interpretation  of  the  word     .Uparture.      Many 
chanKe.  n.ade  l.y  the  employer  which  he  considers  are  not  .lepar- 
tures  from  the  prewar  practices  have  l«en  n.ade  and  no  record 
kept  because  they  have  been  dne  to  cha.tKes  m  .naclnnery  or 
methods  of  production  which  call  for  the  e,nployn,eu.  of  ad.  Te- 
en. Krade  of  labor.    Under  the  circumstances  the  en.p  oyer  calls 
this  ,..■«.  work,   while   the  laborers,  havi.,K   '""';"'    '^JJf^ 
formance  of  similar  work  Uiore  the  war,  .ns.sts  "-a    th.s    s  a 
••  departure  "  or  "  cha..ge.''  which  re<,v.ires  a      record.       Prob- 
lems of  this  sort  have  bee.,  particularly  perples.nK  ,n  connect. on 
with  dilution  and  the  Ministry  of  Munit.ons  has  '■■"''■;^;:"«'   '" 
lay  down  the  principles  to  be  followed  although  adm.t  .ng  that 
many  cases  arise  in  which  there  is  a  large  element  of  doubt. 

Thus  in  a  memora..dum  («.-.)  issued  in  September,  lUlO,  by 
the  Ministry  of  Munitions,  it  is  stated  that 

The  introduction  of  new  machinery  or  .he  aUera.ion  or  improvemen.  of 

should  be  made* 

The  following  rules  are  laid  down  for  controlled  establish- 
ments in  the  matter  of  dilution : 

S    When  the  workshop  or  depar.menl,  e.c.,  has  been  started  since  the  war 
rr  .V  iob  .s  ne*  .0  ,he  i-s.aM.shmen.  and  .he  work  is  carr.ed  on  under  d.f- 

r!jxtr;t;rri:r:.;t.:....,.,......~.«.».i.--. 

*rs  Lr;.',"t~sr.. ..... .,  --.  ■•"■  -  .—• « •• 

regard  to  a  change  in  the  cla«  of  lalior  employed: 

.  Memorand,™  M.  M.  95  (en,.x,dving  Circulars  US  and  M.  M,  56).    Para- 
graph 7.  BrilM  l«duslrial  LxfcriMC,  vol.  1,  p.  376. 


HIE    DILITION   or    I.Anol, 


b. 


a.    Th,-  ctiii.r,,,  ni.nl  „f  „,„,„.„  „„  „,„L  ,„,„     .      , 

ZT:!r'"'"' """""" » 

The    ,m„l.  .,„r„.    nf    „nsl,m..„    m.„    ,„ 

■'"'  inilil'ijimni  iif  ,i.,„ 
ilollid  mil.. 

Iliv  iiiirilcijimiii  of  men 
■riothiT  trade. 

m:::i:1::'T™';1t  """"•""'>""■ ^-'^ 

,    ■"""""  II.1--   Pii    iho   same  ira<K-    ,.,,.1,   ,.    ,,, 
'""■  """I''  of  ,l,>i„B   wnrk 


l".! 


'k  (•.rm.Tly  ,|„ne  by  ...mi- 

»"'!<    fiirmirl)    .1.11,.    |,y 

'•»l<illc,l  men  „„  „,„|,   ,„^^^^,^,  ^___^    ^^ 

'"""""■''■"   ""'I.   fTmorly   ,l.„u-by 

thi-  wnrk 
ft'*  clniriB 
.htci  irun 


'hc.„hor,s,hcr,af,„,l,„„K,„„,„^,„..„  ,;,;■> 


ikilkd  rran  and 
woman 


of  (lecidinp  questions  as  t„  tl, .  r    ',        .'"•^"■'."''  -'"^  'I"-  purpose 
when  once  , he  .v^r  is  over  """""  '"  ""■"■"  ^'""''''""^ 

II  is  this  very  unartainty  as  to  how  far  rcstor-  f 

war  comhtions  can  m  which  hns  l,„.„  "'  P"" 

-tlessnessan.l,hsl,:^^     ^^      :,;- -P-;     -  -'he 
Week  !„•  week  chanRes  are  ttkin/  h     '/       "^"  """'""''■ 

shop  which  apparenli,  ar^  ^Z^Z  ^     l^^^ ""  T'" 
hehevc  can  not  l)c  undone   „„       ..  '"""""''"'<•■  workmen 

^rinisters  an.l  t       hI"    of  ."  ""'  ""'"""  ""  "'"'«"  "' 

will  he  restored  ^"'""""'  """  "''•  "'''  conditions 

men.  to'antend    he      u  irnrt,"'^'""""-^"""  "^  '"'•  •■-■-- 
private  work  was  one  01^^  "■"    "  "'™''  '"'•"'™  '° 

-'es  Of  strikes  i:;:e°:;;:-:^:;2:C-- -tensive 


184  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

Very  reluctantly  the  government  abandoned  the  plan  to  require 
dilution  of  labor  on  private  work.  Repeated  conferences  were 
held  between  the  government  and  the  leading  trade  unionists  in 
the  engineering  trades  and  changes  in  the  mode  of  safeguarding 
skilled  labor  in  these  trades  were  suggested  with  the  idea  of 
making  the  dose  more  palatable.  Progress  seemed  to  be  made 
and  for  a  time  at  least  the  leaders  seemed  reconciled  to  the 
plan  '  Opposition  continued,  however,  on  the  part  of  the  rank 
and  file  of  the  trade  unionists  and  the  "  silent  strike  of  May, 
1917  showed  the  futility  of  attempting  to  coerce  them.  When 
Mr  Churchill  became  Minister  of  Munitions,  it  was  decided  to 
Abandon  that  part  of  the  Munitions  (Amendment)  Bill  of  191T 
which  provided  for  dilution  on  other  than  munitions  work. 

Dilution  has  nevertheless  taken  place  on  a  large  scale  m 
private  plants  and,  as  we  have  seen,  employers  have  been  aided 
in  bringing  it  about  by  the  factory  inspectors  and  other  officials. 
It  has  been  greatly  facilitated,  of  course,  by  the  government 
program  forbidding  the  entrance  of  men  of  military  age  into 
the  restricted  occupations  and  by  the  rapid  withdrawal  from  the 
nonessential  trades  of  able  bodied  men  for  military  service.  In 
such  cases  probably  the  word  "  substitution"  is  more  appropri- 
ate than  "  dilution." 

i  British  IndMSIrial  ExptTimce,  vol.  1,  p.  383. 


CHAPTER  VIII 

Wages,  Cost  of  Living    Hours  of  Labor.  Welfare  Work 
and  Unemployment 

the'^ates'of?""'  f ""''"''  ""  ^'^"^^  ^'^'''^  '""^  P'-  in 

^ookthe   form  of  bonuses  "  l.mitcl  ,o   the  duration   oi  the 


Extent  of  Wage  Increases 
19uV^"f  '["'"'"'  "P'"'  °f  ^™e^  ^h='"ges  for  the  year 
wages  were  reported  to  have  changed  during  the     -Z  ToT  03, 

Si=-::i=— -----.- 

22,050  had  had  upward  and  downvar,.'       ng's  wlich   eTZf 
wages  at  the  same  level  held  at  the  beginning  of  th    y  a 

The  tncreases  which  took  place  were  most  marked  n  the  build 
ng    engtneenng  and  shipbuilding  and  transport  trad  s    wMe" 

industrr"?""'"'"  '■"  ''"^  "'"'"«•  P'«  -°" -'  iron  and  s 
produc;?  "'"'  "^^^  ""^'"^'^  "•■"'  '"^  -"■"«  prices  of  the 

The  first  trades  to  be  affected  by  the  upward  changes  in  wa<re, 
following  the  outbreak  of  the  war  were  th  ,=  ""wages 

concerned  with  the  output  of  m:",i:ra:  Thernsp'r  o^ 
troops  and  supplies,  but  the  movement  soon  spread  to  aMndus 
tr.es.  as  the  number  of  enlistments  rose,  the  shortage  ofH.^ 
became  evident  and  rising  prices  not  only  jus.ifi'edXaJdl  t 

Labour  Gazelle,  19IS,  p,  30, 


180  BRITISH    LABOR    CONDITIONS    AND    I    IGISLATION 

increased  remuneration  of  labor  but  made  such  increases  possible. 
In  October,  I'JIS,  the  Board  of  Trade  presented  a  table  which 
showed  that  in  various  groups  of  trades,  so  far  af  reported  to 
the  department,  2,S-Ki,00U  work  people  had  received,  since  the 
beginning  of  the  war,  increases  in  wages  estimated  at  £4'J3,800 
per  week.  These  figures  relate  only  to  manual  workers  and  are 
exclusive  of  shop  assistants,  clerks,  salaried  officials  and  domestic 
servants.  The  same  authority  estimated  that  1,000,000  railway 
servants,  seamen,  agricultural  laborers,  police  and  governmental 
employes  received  in  the  aggregate  increases  in  wages  amount- 
ing to  £270,000  per  week. 

While  the  wage  increases  affected  all  the  principal  trades,  they 
were  most  marked  in  coal  mining,  engineering  and  shipbuilding, 
with  large  advances  to  general  latrorers  in  all  districts  throughout 
the  country,  and  the  advances  were  less  noticeable  in  the  build- 
ing, printing  and  furnishing  trades,  in  linen  manufacture  and  in 
certain  luxury  trades. 

Apart  from  these  advances  in  the  rates  of  pay,  many  workers 
had  received  substantial  additions  to  their  weekly  earnings, 
owing  to  overtime  work,  speeding  up  and  greater  regularity  of 
employment.' 

Taking  the  year  1915  as  a  whole,  the  total  number  of  people 
who  were  reported  to  the  Board  of  Trade  as  having  received 
war  bonuses  or  increased  rates  of  wages  was  .3,10,5,000.  The 
total  increases  were  £003,000  per  week  or  an  average  per  person 
of  3s.  lOd.  The  increases  were  greatest  in  the  trades  mentioned 
in  the  October  report. 

There  were  three  periods  of  rising  wages  and  two  of  falling 
wages  in  the  nineteen  years  preceding  1U15,  said  the  Labour 
Gazette,  the  periods  of  rising  wages  being  the  five  years  1800- 
1900,  the  two  years  1900-1907,  and  the  five  years,  1910-19U,  but 
the  increase  for  the  single  year  191.5  was  greater  than  the  increase 
for  any  of  these  periods.  Compared  to  the  £003,100  weekly 
increase  in  191.'),  the  greatest  increase  recorded  in  any  single 
year  prior  to  Wi:>  was  £208,588  in  1900.' 


1  Labour  Gazette, 
'lhid.,\9\i,  p.  4. 


1915,  pp.  354-355. 


WAGES.    COST   OP   L.V.SG.    ETC.      '  j^, 

overtime,  greater  reRuIaritv  oleZ  "^'  '"'"""«  f^°"' 

of  work  people  fro^  ^  pa  , TTl''''  "'  ""=  '"-f"™- 
O"  the  other  hand  they  lo  ZTJ  ^^^"  '■''''''  '"'Ploy'^nts. 
substitution  of  w„n,e,ra n;;™;!'::"'"  T'""  ""  ^^'^-'■- 
tended  to  Icnver  wages  per  head  of  th""'    7  '"™'  "'"'^'^  ''^^ 

The  upward  mo^nem  i     /  ,       '""  ^'"P'"^-.'" 
om  the  year  I.ni.  „ffec,inc  an,  r  P  """"""^''  ""-""Sh- 

Persons  so  far  as  thesr^e^eTe""  T^h  '"^  T^  "™"-  "^ 
reported  to  have  recei,-ed  an  inrrV  '""''"  °f  P^^ons 

an.l  the  net   weekly    ncre"       """'  "'^  "' f-^-^' «- ■^■-•''0.->00 

P-edingyear,a„averageTf.a  :;  r  ,'"  ''"'''"''  "^^  '"^ 
^   't  should  l,e  rememl,ere,l  ^1',   t  P"P"^"'^- 

figures  •■include  increase    gr,  1"      i"""  ''■  "="  '""^ 

a™l  women  and  girls.  The'^olt  of"th'  ",'  """"  '""  '"  '^"•- 
men  has  usually  been  greater  than  hi  """*  K"""^''  '" 

and  aecordinglv,  if  the  aver  J.  *^'™"  '"  ''"'^^''  a"''  boys 

.races  1.  calc^da.ed.'ir^driraSt  ^  ''"'  ^"  '^^  ™-- 
and  female  labor  employed    and  tl  e  ,  Pl^oportmn  of  male 

alone  would  he  greater  "  =  '"'"»<=  '""''^^  for  men 

1916,  nearly  six  million  work  people  harl  r,         !    "^    °  ""=  ""*  "'  December 

o-t;ii^er-^t:t'tS~--- 

received  increases  of  wages  was  Vr^o  oon    "^     "P""^''  «"  ^^ve 
of  .He  weekly  inereases'^arf^  :  "  T L"^  ""^'  '""""''  ' 

^fefr;'V-—  ^^™--e 

'/»«•,  p.  3.  ■ 


188  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

about  in  some  trades  by  the  operation  of  the  sliding  scales  based 
on  the  selling  price  of  the  products.  This  was  true  in  the 
pig  iron  and  the  iron  and  steel  industries.  In  the  engineering 
and  shipbuilding  industries  the  awards  of  the  Committee  on 
Production  explain  a  large  part  of  the  increases  and  statutory 
orders  Ijy  the  Ministry  of  Munitions,  and  arbitrators'  awards  or 
trade  agreements  were  responsible  for  others.  War  grants  and 
bonuses  were  largely  responsible  for  the  advances  in  the  textile, 
the  boot  and  shoe  and  other  trades.  Of  agricultural  laborers  it 
is  said  that  the  rates  of  wages  "  continued  to  rise,  partly  as  a 
result  of  the  rise  in  retail  prices  and  the  shortage  of  labor,  and 
partly,  in  some  districts,  in  consequence  of  the  enactment  for 
Great  Britain  of  a  minimum  wag°  for  adult  able  bodied  men,  at 
the  rate  of  25s.  per  week,  inclusive  of  the  value  of  allowances  in 
kind."  ' 

During  the  first  six  months  of  1918,  changes  in  wages  have  all 
been  in  an  upward  direction.  A  net  increase  in  their  weekly 
wages  of  £1,174,700  had  been  received  by  2,500,000  workers. 
The  increases  were  largely  in  the  shape  of  war  bonuses  or  war 
grants  by  the  Committee  on  Production.' 


Wage  Regulation 

The  government  seems  to  have  made  no  eilorts  to  regulate 
wages  or  to  interfere  in  any  way  with  the  wage  contract  until 
the  passage  of  the  Munitions  of  War  Act  of  July  2,  1915.  Even 
then,  such  regulations  or  interferences  were  limited  to  controlled 
establishments,  except  that,  under  the  compulsory  arbitration 
provisions  of  Part  I  of  the  act,  differences  in  regard  to  the  rates 
of  wages  were  among  the  differences  which  might  be  settled  by 
the  methods  there  laid  down,  if  such  differences  arose  in  muni- 
tion establishments,  or  in  other  establishments,  provided  Part  I 
of  the  act  had  been  applied  to  them  by  the  King's  proclamation. 

The  Act  of  1915  applied  to  wages  in  controlled  establishments 
in  that  it  provided  that  any  proposal  for  any  change  in  the  rate 
of  wages,  salary,  etc.,  of  any  class  of  persons  employed  in  such 

» Labour  Gazette.  1918,  pp.  4-5. 
'liid.,  pp.  234,  279. 


WAGES,    COST    OF    LIVING,    ETC  IS), 

through  a  lon^  nroce'  ^f  ''Y  '^'",^^"^  '^ey  had  buil,  up 
unexpLed  suMha  „mler,h  '  r  '-argaiuing.  I,  had  .he 
and  will,  the  ai    oflTt  "?"'"'  "^  P'""'  ""=  P^°''"«ion 

received  by  the  skilled  laborers  whose  placed  ,"1,     en  fi     ,"",'' 
what  was  more  trying  i„  evce«  nf  ,1,.  ,         ""'  ''"''• 

ers  WHO  remained^at  t^ oT:^.!'^?^:;::::^  "^  '""''  ^•-^- 

pr<St5uf;-y:re:™^  =■' rr -™' ^^'-^ ''''^ 

fun  exertions       o^    e/r  o    a"tl  ^t'       T' ,'°  ""'  '"""^  '"'■> 
November,  IDIJ    therefore     ht  M  /""•"''""  "'"■    ^" 

notice  (Circular  ion;    1    'rr  ''\''""''!''-  --■  a 
establishments  need  not    eir  thai'  '    ,"""  '"  ™'"^°""' 

ou^ut  would  lead  .o^'r^^^i^'.^^;™:;:^::^::  rr '- 

paid,  in  view  of  the  fact  th;,t  n      i  l"''^*-  ™«-"  '"en  bemg 

couM  be  made  wii^i:"^^  ^i'^^:  :::^--^-^  -- 

pared  to  exercise  his  powers  if  nece«arv   i,  """  Pre- 

reduction of  piece  rateLs  a  c^se.ue  lof  te ":  ^s^e  177  ' 
due  to  suspension  of  restrictions'  °^  °"'P"' 

upon  the  Minister  of  Muniti  "    7  e;  ,1   ^  r  """  T!""' 


<m 


it 


I 


100  BRITISH    LABOR   CONWT.ONS    AND   LEGISLATION 

case  of  female  laborers  than  in  the  case  of  male  labor. 

Regulation  of  Women's  Wages 

1  i,v  thp  Ministry  of  Munitions  relating 

trolled  establishments  ha.l  fixed  f  1  a  xveek  ^^  in«. 

Imen  and  prescribed  the  same  ^^ l^^^ZZl^^^J- 

the  power  to  enforce  these  -^^^^'^f  ^Xnt  to  the  act  in 

r'  IvT-rorpCibe^  -^^^^    this  drcmar  were  issued 
January,  l"'''' 'i^' P'^'",,    la.f,,  a  ,„  establishments  m  engi- 

rerwor::r:;:^--.e^t  ope:  the  .restion  as  to  the  wages  of 

b/the  amended  Munitior  ,  Act  '^^-^^  ;^t^T: 
tribunal  to  deal  with  ^^^  ^  ^^f.J^'  of  women  muni- 

-r:^r::r:sr^::;:---swor.  The 

"^'^"UsH  fXtrAerience.  vol.  1,  PP.  397.399. 
«;W<i..  pp.  1029-1030. 


!  ]  ■ 


WAGES,    COST   OF    LIVIXU,    ETC. 


1!»1 


tribunal  issued  awards  wliicli  allowtil  a  mininuim  wage  of  4Hd. 
por  hour  to  women  time  workers  and  sonifwliat  more  to  piece 
workers.  Later  these  awards  were  Rathercd  up  into  a  Reneral 
order  issued  by  the  Minister  of  Munitions  applicable  to  women 
engaged  on  "  munitions  work  of  a  class  which  prior  to  the  war 
was  not  recognized  as  men's  work."'  .Another  order  ( \o. 
4.11;)  =  issued  the  same  day  fixed  rales  of  pay  for  girls  under  Is 
when  engaged  on  work  which  prior  to  the  war  was  cust.imarily 
done  by  male  labor  of  IS  years  of  age  and  over.  The  time- 
rates  prescribed  varied  from  I4s.  a  week  for  girls  under  1(1  to 
ISs.  a  week  for  girls  17  years  old  and  the  piece  rates  allowed 
were  from  30  to  10  per  cent  under  those  paid  to  men. 

The  terms  of  Order  447  called  forth  a  vigorous  protest  from 
the  women's  trade  unions.  They  claime<l  that  making  the  rate 
of  f  1  a  week  a  prescribed  rate  instead  of  a  minimum  rate  was 
contradictory  to  the  promises  made  by  Mr.  [Joyd  George.'  The 
reply  was  that  the  Minister's  promise  was  only  in  regard  to  the 
wages  of  women  on  men's  work.  There  were  also  complaints 
that  no  allowances  had  been  made  for  overtime  and  Sunday 
work  and  that  piece  r->te  workers  were  not  allowed  to  earn  more 
than  the  time  rates.  A  supplementary  order  (\o.  618)  was 
therefore  issued  on  Septemljer  1:!.  1!I16,  which  regulated  the 
rates  for  overtime,  Sunday  and  holiday  work  and  which  pro- 
vided that  the  piece  rates  should  be  so  arranged  that  a  woman 
or  a  girl  of  ordinary  ability  could  earn  at  least  one  third  more 
than  her  time  rate  for  the  same  class  of  work.* 

When  first  issued  Order  447  had  not  been  made  applicable  to 
all  controlled  establishments,  but  only  to  about  1,400  establish- 
ments engaged  in  the  manufacture  of  armaments  and  ammunition 
ordnance  and  e.xplosives,  shipbuilding  and  the  various  branches 
of  mechanical  engineering.  In  January.  '!)17.  upon  recommen- 
dation of  the  arbitration  tribunal,  the  Ministry  of  Munitions 
issued  Orders  Nos.  0  and  10  (the  latter  applicable  to  establish- 

401-402"  '^'°'  **'  '^"''^  *■  '"*'■    *"'"'■  '"''"""<•'  E'P'rience,  vol.  1,  pp. 
=  Ibid.,  pp.  403-404. 
'  Andrews  and  Hobbs,  op.  cit..  p.  94 
*  British  Industrial  Experience,  vol.  1,  pp.  407-408. 


rj,  il 


I 


102        ■    BRITISH    LADOR   CONDITIONS    AMU  LEGISLATION 

ments  in  rural  districts)'  which  applied  the  main  provisions  of 
Order  447  to  a  number  of  additional  trades. 

One  of  the  leading  causes  of  complaint  in  connection  with  the 
operation  of  Order  447  was  that  women  were  "<>« /"i'l"""'' 
paid  when  thev  were  doing  only  a  part  of  the  work  of  skilled 
men.  The  women  in  most  cases  had  to  have  the  machines  s  t 
„„  bv  skilled  men.  The  trade  unions  held  that  this  should 
not  pVeclude  their  receiving  the  skilled  men's  rate.  The  employ- 
ers held  that  this  was  unreasonable.  There  was  no  provision 
ma.le  in  Circular  L2  and  the  subsequent  orders  based  thereon 
for  any  rate  for  women  between  the  £1  a  week  and  the  fully 
skilled  tradesmen's  rate  to  women  on  time  work,  nor  was 
there  any  al!-.ance  for  work  of  a  specially  laborious  nature  or 
where  there  were  exceptional  local  conditions. 

To  settle  this  controversy  the  Minister  asked  the  advice  of  'he 
Central  Munitions  Labor  Supply  Committee,  which  had  drawn 
up  the  original  Circular  LL>.  That  committee  mad.  recommenda- 
tions  which  were  referred  to  the  special  arbitration  tribunal  for 
its  consideration.  The  recommendations  of  the  two  ladies  were 
embodied  in  Onler  888  issued  on  January  1.  1917.'  which  fixed 
£1  as  the  lowest  rate  for  a  week's  work  of  48  hours  or  less  and 
an  additional  6d.  per  hour  for  every  hour  up  to  54  hours  per 
week  Provision  was  made  for  the  payment  of  higher  rate.3  for 
work  of  a  specially  laborious  or  responsible  nature  or  performed 
under  special  circumstances.  The  specific  rates  ot  wages  were 
not  fixed  for  this  work,  but  it  was  to  be  paid  for  according  to 
the  nature  of  the  work  and  the  ability  of  the  women. 

The  question  of  the  pay  for  women  employed  on  '  work  cus- 
tomarily done  by  fully  skilled  tradesman"  was  not  final  y  deal 
with  but  it  was  said  that  a  further  order  on  this  subject  would 
be  issued.    This  was  done  on  January  24  on  the  basis  of  arrange- 
ments which  had  been  made  by  the  dilution  commissioner  on 
the  Clvde  and  on  the  Tyne  in  cases  where  women  were  employed 
on   fully  skilled  men's  work.«     Order  40 «  declared  that      a 
1  BMsh  Industrial  Experience,  vol.  1.  PP.  417-422. 
•-  Ibid.,  p.  415. 
» Ibid.,  vol.  2,  p.  10.«. 
*lbid..  vol.  1,  pp.  423-427. 


WAGES,    COST    OF    LIVING.    ETC.  I93 

woman  shall  l,e  con.sidere,!  as  no.  employed  on  the  work  ens 

r;^^Tr-^-h:''r::::\rrr'"''"-'--'™ 
:;ir:nSnS;:r::tr;^^'Vr"'''-^^ 

<Ii.l  only  a  par,  of  ,he  work  •^u.u,^';,,!^^;::'':^^ 

1  hereafter,  they  were  to  l,e  p,.„l  at  the  ,l,stri<t  rate  of  ,|,e   r„l... 
men  whose  work  they  were  performing,  ,,.,.,,  „,,,;  ,       .;  '       : 
sary  to  incur  extra  cost  for  setting  im  nr  ^L-iii    i 
employer  was  allowed  to  ..e.r  fri  "h;^;'  i:::r  oi:: 
10  per  cent  to  cover  this  extra  est  ■  ^  '  ni.  ri  th.in 

3,875  establishments  where  women  and  giris  were  emnloved  on 
work  not  recognized  as  men's  work,  andln  .0  Tal  "hme,  s  in 
whichwomenand  girls  were  employed  on  wood  w^or^^^^^^^'^^^^^^ 
n  this  las,  named  group,  although  ,he  w.ges  fi.ved  in  Septe  nhlr 
1910,  approximated  those  fixe<l  for  men's  work    ,h,r! 
recognition  of  the  principle,  equal  pay  for  en  alwork     TheV"" 
craf.  industry  had  expanded  enormously  since     e.rhe^:  Z 
-t  was  felt  ,hat  ,o  legislate  for  women'.s  wages  „„  ,h    custom 
existing  prior  to  the  war  might  unduly  hamper  its  dev      p^m  "  = 
On  .April  4,  IfllT,  the  .Minister  of  .Munitions  .lecided  a  ,er 
cons„„3„on    wi,h    the    special    arhi,ra,ion    Iriininal,    "  n    v 
of  ,he  increasing  cos,  of  living  and  of  ,he  general  increase  in 
he  wages  of  men  in  the  engineering  and  shipbuilding  indu  tries  " 
to  allow  certain  increases  in  the  wa-es  nf  wnm„,;         ,  "^"'^• 
take  effec,  'rom  April  1    1017     Th  '""'^"^  '° 

,  ^..t   t  ■  ^""^  '""eases  amounled  ,o  4s 

a  week  for  women  ,ime  workers  employed  on  men's  work  and 

I-abour  Ca:clle.  1918,  pp.  255-257  -    *■    '""•     Reprinted   in 

'Hrmih   Indtislrial  Experinicc    vol     '    r>    ino      c 
Hobbs,  loc.  dr.  pp.  98-99  "  "^^   '"■'-     ^"  »''^»  Andrew-  and 


in4  BRITISH    '.Anon    lONDITIONS    AND    I.K0IS1.ATI(1N 

1(1.  per  hour  for  ihcisc  eniplDjeil  on  work  not  rccoRniziil  as  men's 
work,  with  corresponding  adjustments  in  the  wages  for  girls 
and  for  piece  workers.' 

Another  advance  in  the  wages  of  women  and  girls  employed 
on  munitions  work  was  made  on  August  HI,  I'.il"."  The  increase 
amountetl  to  2s.  lid.  a  week  for  women  IK  years  of  age  and  over 
and  Is.  ad.  per  week  for  girls  ui:der  in.  They  applied  to  lK)th 
time  and  piece  workers  and  were  payable  to  all  women  and  girls 
over  their  weekly  earnings.  The  advances  were  intended  to 
meet  the  increased  cost  of  living  and  were  maile  as  a  result  of 
representations  made  hy  several  trade  unions  It  wa ,  understood 
at  this  time  that,  as  in  the  case  of  the  men  munition  workers  in 
the  engineering  trades,  women  munition  workers  would  have  the 
right  to  have  their  wages  revicweil  hy  the  Committee  on  I'roduc- 
tion  or  other  triliunal  every  f>ur  months  and  have  them  a<ljusted 
to  the  change  in  the  cost  of  living.' 

A  new  order  (No.  .140)  in  respect  to  women's  wages  was 
issued  by  the  Ministry  of  Munitions  on  May  H,  IIIIH,  which 
besides  consolidating  existing  orders  made  certain  changes  in 
the  rates  of  pay,  usually  in  the  way  of  an  advance  over  previous 
rates.    Some  of  the  important  alterations  are  as  follows; 

(a)  Higher  wa^  s  are  authorized  for  worn  especially  danger- 
ous, laborious  or  responsible. 

(b)  The  pri:iciple  of  differential  time  r-tes  for  time  workers 
and  those  on  systems  of  payment  for  results  has  been  abolished. 

The  percentage  over  time  rates  which  piece  work  prices  or 
premium  bonus  time  allowances  are  required  to  yield  has  been 
altered  from  3;i  1/3  to  25  per  cent. 

(c)  Special  rates  have  been  fixed  for  wood  work  processes 
and  for  aircraft  work  which  yield  to  the  women  workers  not 
less  than  Od.  per  hour.* 

The  trade  unions  have  criticized  the  government  for  fixing 
standard  rather  than  minimum  rates  of  wages  for  women  work- 

'  Circular  L85,  Britiih  ladu.'lrial  Exferience,  vol.  1,  pp.  428-432. 

"  Order  893.    Ibid.,  p.  «3.  ,  ^  .     ,,      , ,     o     ■ 

«  Ckriitian  Science  stionilor,  September  6,  1917,  quoted  in  Monlhly  Kevtcw 
of  U.  S.  Bureau  of  Labm-  Slalislics.  October.  1917.  p  83. 

•  Monikh  Labor  Rrview,  U.  S.  Bureau  of  Labor  Statistics,  August,  1918, 
pp.  160-161; 


WAGES.    COST   OF   LIVING.    ETJ.  ,,,, 

crs.  but  the  government  has  .lefen.lo,!  ii, 

^ut  „penence  has  j„s.iHe.l  i. s^!;;! -l^'V^""  """  '"""' 


'  wamcri  w.irki 


«o  them  n.,.  .h;i!;;h  ::st;";'  ""'t--  ■■•  "^"^-  -■- 

pulaory  order.  '  l«rBa,im,K  Inu  t|,r„„j,|,  ,,  , 


Mn- 


are  for  tlie  mos 
to  them  not  i 
pulsory  order 

'o">:™:;"rr.Jt,t:r:::^i"  --  --■  -> ...,. . ,.. ,., 

'"•  o„  ,.„.  „r,„c„,i,  ,h,, ,, ';  '^ "'  ^';,"'"-'-i  ■■"  -.,  .,,,1  ..„>,■ 

"V",      '"y  nni,c  co„d,h„n.w,nr,th       :.    '  '''■'"""">■'  "«"■'•."..,     M.,r. 
»»■'-  rnu,.  „ccc„ar,l,  U-  „,  ,      '!'*"'"■"  "''  '■•""'">-l  "..  n„,„„i,.,„ 

'-'™:^.;::r;;;X:?— :••'--- '.e™  made 

women's  organization,  claim  ,11,  ,  ""'"'"""  ""^'^"^  ""^ 

far  ..hind  ."^e  n.lvances   n ''.Lt     'aV;  I^r^''^  "'  ""«-  '■^'■'  » 
wage,  have  atont  ,he  san,e  m.,^.  h,  K"vernment  sian.l  rd 

increase  in   the  coV  1    ™  ^  ''T'  ''^•'".-  "-■  -r.     The 

working  man's   budge,    Z    ^J       7  ""5  '"'"  ""'  ""'in^ry 

J">y.  1»14.  and  June', .rLThV;:"'  ''  ""  ""'  ""^^^- 
workers  which  the  Minister  nXr  ''"•■''■''■  "^''  ''''  "omen 

2S^.  would  have  the  am  °  '""'''""  ""'  "'  •'""^'  ""'•  was 
had  in  .1.14.  n  mustXr  ?",'■"""  '''^  '^'  """''l  have 
•mploymon.   ad,       o^-ertrr  ""  '  ','":""'  "^■'"  "'^  ^'-"X 

earnings  of  women  have, Xe":?-  "T*  "'''  "■' 
though  i,  be  admitted  that  the  0,1,  '""'  "'''  ""^-  "■^" 

al»  be  admitted  that  the  rates  of  n™;  "  """-'■"•■'-  I-  -nust 
establishments  are  higher  ha"  .^  ™"""  '"  "'^-"'rolled 
for  the  same  kinds  of  work     Red  v"'"' •"'!:"'  ''^•■""-hments 


May.  1918,  p. 


y.  m,  p.^!?""'      ^°'"'^"  ■"  "■'  M„„,-,i„„  Trades."  .„„„,„,,,  ^„,^^^, 


11^ 


186  »«IT1S11    LAllOR   CONUmONS   AND   LEOISLATION 

a.  th.  Mini.lry  of  Munition,  in  ihc  matter  of  won.en's  waRo. 
though  the  Admiralty  has  Kenerally  a.lvance.1  .t«  rate,  to  the 
tevel  of  the  munition,  trade,.  The  l'o,t  Office  l)e,>artmen.  ha, 
nade  its  wage  increase,  in  the  form  of  war  lK>nu,e,  and  these 
have  been  larger  for  men  than  for  women.  The  strongest  com- 
plaints  have  been  made  in  regard  to  female  clerks  work.ng  und  r 
civil  service  rules  whose  weekly  wages  were  only  fnm.  20s.  to 
2«,  for  clerical  work  and  ;i(),.  for  supervisions.  The  women 
w-re  also  receiving  much  les,  than  men  received  for  similar 

\     'k ' 

,  lho,e  private  industries  in  which  minimum  wage  rates  are 
fi«d  by  trade  boards  under  the  .\ct  of  VMV.K  the  minimum  rates 
have  bee.i  advanced  in  an  effort  to  meet  the  mcreases  ,n  tlu    ost 
of  living      Although  considerable  advances  were  nude  by  the 
tailoring.' confectionery  and  tin  box  board,,  i.  does  not  api«ar 
that  the  increases  had  been  sufficient  to  make  up  tor  the  decrea«d 
purchasing  power  of  money.'     Although  the  scope  of  several 
toards  has  been  widened  during  the  war  no  new  boards  have 
been  set  up.  except  the  agricultural  wages  toards  provided  by  the 
Corn  Production  Act  of  August  21.  liilT.'    Alth.mgh  these  agri- 
cultural toards  are  to  fix  minimum  wages  for  women  as  we  1  as 
for  men  the  legal  requirement  that  these  rates  must  be  such  a, 
will  yield    o  the  worker  an  average  of  at  least  2r„.  a  week  does 
not  apply  '  j  women. 

In  tho'e  trades  in  which  women  are  employed  and  in  which 
there  are  strong  labor  organizations  the  efforts  of  tht  union,  to 
protect  their  wage  standards  have  generally  led  .o  agreements 
whc  eby  women  substituted  for  men  are  to  be  paid  the  men  s 
rates  These  agreements  have  been  of  special  importance  oil 
the  railways  and  in  the  cotton,  woolen  and  worsted,  china  and 
earthenware,  and  boot  and  shoe  industries  and  have  improved 
materially  the  position  of  the  women  workers.* 

1  Andrews  and  Hobbs,  op.  cit.,  p.  104. 

'Ibid:  PP-.K"-'.**?'  ,  „..  in?  in«l  lenislation  has  bten  enacted  in  1918 
Jt^n'^-pS^  r%i?Sn°o/?h'e'S'rra,ds  without  n««si...ing 
ParUameTit  sanction  in  each  case. 

<  Andrews  and  Hobbs.  op.  cil .  PP.  102-lW. 


WAGES,   COST   OF   LrVINO.    ETC.  ,(,7 

:rti— ■=;=-- -rr^ 

.pr.>x,m..u.  ,.  ,hc  ra.es  of  ,hc  ma,  .l,spl  J,  ■• .     T  .      ,  |   " 

whuh  tm|,l„yc,|  larRc  mm,h,;r.s  „f  w..ma,  „ri„r  i„  the  u-.r     I 
he  mHucnce  ,„  c.,s,o„,  an.l  .„.  n,.„r..,,',,j;    ,;;,:,.,:" 

^::::  w.^r -« -e  „„;'::,rt 


Regulation  ok  Mkn's  Wages 

The  problem  of  the  reRulalion  of  men's  wai;e.  has  been  n,„.u 
simpler  than  that  of  women's  wages  because  nf.h  ''"" '"."'^'' 
scope  of  the  regulations.  '  ""■  "'""^ ''"""'' 

No  regulations  of  men's  wages  were  authorise,!  by  law  until 

fl     leS'  "   .f  """'''""^  •"  ^^'^^  (AmenJ,en,^  t ' 
1»1B.    Section  7  of  that  act  empowered  th.-  Ministc    of  M„n; 
fons     to  g.ve  directions  as  to  the  rate  of  w„  es  ho  t      f  2 
or  condition,  of  employment  of  ..mi-skilled  and  un"  '  ^  ,  mt 
employed  m  any  controlled  establishment  on  munitions  w"" 

customary  pnor  ,o  the  war."  All  such  directions  w"e  bindin' 
on  the  owners  of  such  establishments  and  on  the  con.rac.o  s  and 
subcontractors  employing  labor  therein.  Prior  to  he  p  sage 
of  th,s  amendment,  the  Ministry  of  .Munitions  had  at  empt  d  1o 
control  the  matter  of  remunerafon  of  semi-skilled  labor   when 


Iff 


198  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

subs„.uted  for  skilled  labor,  by  meany^f  Ci.^ar  U  is^ed  in 
October,  1U15,  at  the  same  time  as  Circular  \l  dealmg  ^^  m 
_•  wage;  was  put  out.  Both  circulars  were  P-P-^^^y  h«= 
Central  Munitions  and  Labor  Supply  Comm.ttee  and  the,  po- 
visions  could  in  the  nature  of  things  only  be  of  an  ^v  sory 
character.  .Xfter  the  amendment  to  the  Mun.t.on  of  War  Act 
"ovisions  of  Circular  L3  were  made  mandatory  by  the 

''iXtLfoi  this  order  semi-sWilled  and  unskilled  male 
laborers  employed  to  do  the  work  of  skilled  labor  were  to  be 
ptd Te  same  time  rates,  piece  prices  -dp-mm  bonus  -, 
as  wer-    -ustomarily  paid  when  the  work  was  performed  by 
tkiM  l..„r.     These  rates  were  not  to  1«  a Uered  unless  th 
m  ans   or   methods    of    manufacture    were    changed,    and    al 
"  ert,me,  night  shift,  Sunday  labor  and  holiday  allowances  w 
to  be  paid  on  the  same  l^asis  as  for  skdled  laborers.     In  the  case 
of  time  ratings  for  the  manufacture  of  complete  shells  and 
fuses  and  cartHdges,  where  such  manufacture  was  not  custm 
arily  undertaken  by  an  establishment  before  '^e  war   the  rates 
were  fixed  at  10s.  below  the  current  d.str.ct  rates  fo^  '""^ 
but  were  not  to  be  lower  than  2Ss.  a  week,  except  that  the 
starting  rate  for  inexperienced  men  might  be  26s^  for  a  per  od 
not  longer  than  two  months.     Extra  sums  were  to  1«  P  "'  ^° 
setting  up,  fuse  making  and  shell  makmg  machines.    Th,s  order 
wa  Tot  regarded  as  of  great  importance  as  the  work  of  machm- 
ing  shells,  fuses  and  cartridge  cases  has  been  done  for  the  mos 
pan  by  women  and  the  other  work  covered  by  the  order  has 
usuall/ been  dealt  with  by  agreement  between  the  unions  and 
employers,  for  the  order  was  not  intended  to  prevent  or  d,s- 
Turage  collective  bargaining.     Whenever  such  an  agreemen 
has  be'en  made  between  an  employers'  federation  and  a  ^de 
union  the  wages  f\xed  by  such  agreement  become  the  district 
rate  for  this  cfass  of  work  and  any  of  the    ederated  firms  wh^h 
are  controlled  are  free  to  give  effect  to  the  agreement  without 
awaLg  the  sanction  of  the  Minister.^     A  special  tribunal  to 

1  nrilish   [nduslrial  Experience,  vol.  1,  P-  454. 
!  /MA,  vol.  2,  p.  1038. 


!'i 


WAGES,   COST   OF   LIVING.    ETC.  ](|9 

deal  with  cases  in  dispute  coming  within  the  scope  of  the  or.ler 
was  consftuted  in  March,  101«,  a,  the  .same  time  and  h    1;  he 

An  ,nterv,ew  was  sought  with  the  .Minister  of  Munition. Th„ 
after  consulermg  the  matter,  informed  the  parties  nri 
2(i    iniV   ttiat  !,„  "  parties  on  I'chruary 

Z'J         !  "■'■*'  ■"■'P^"'"^''  '"  '•■''^^  «'<■''  steps  as  nnv  he 

In  September.  1917,  the  Minister  of  Munitions  extended  tn 
vanous  engmeering  and  foundry  tra.les  in  Engianl  an    S<^     „'d 

a  bonus  of  3s.  per  week  for  men  and  Is.  ,;,|.  for  bovs  under ■l.S 
hese  bonuses  "to  l,e  regarded  as  war  advances  in,  nded  ,n 
assist  m  meetmg  the  increased  cost  of  hving  ind  are  ,     I 
recogn,.ed  as  due  to  and  dependent  on  t  e 'ex  s    n      o     t,  ! 
abnor    ,,<,,.  ^^^^^.^.^^    .^    consenurr  o 

war.  IBonuses  of  .5s.  for  men  and  2s.  Od.  for  l„vs  were  allowed 
m  several  trades  m  September  to  date  from  .Xpnl  ,  V  <  t 
bonus  of  lay,  per  cent  on  earnings  was  allowed'"  fully  nullified 

'Illd'.V'lm'''''''  '"■■'I'""""-  vol.  2.  p.  1037. 
'Ibid.,  pp.  4;0-473. 


200  BRITISH    LABOR    CONDITIONS    ANI.    LEGISLATION 

Skilled  engineers  and  molders"  in  October,  1917.'  Jhe  same 
allowance  was  made  to  •'  plain  time  workers  m  the  shM>l.u,h  mg 
and  munitions  trades  "  by  the  War  Cabinet  towards  the  close  of 

^''' \movement  which  has  made  considerable  progress  in  Great 
Britain  during  the  war,  although  it  has  had  to  meet  the  opposmg 
Traditions  of  the  trade  unions,  is  the  adoption  of  the  system  of 
payment  by  results.  The  shipbuilding  tra.les  have  agreed  to 
Lept  the  principle  and  the  rates  of  pay  are  to  be  hxed  by  agree- 
ments arranged  by  district  conferences  of  employers  and  em- 
I"  'n  niauv   individual  establish,.cnts  the  necessUy    for 

ncreased  output' has  also  le.l   to  the  mtroduct.on  of  variou 
systems  of  piece  work   for  different  occupations      The  chief 
diLlties  encountered  are  said  to  be  ( 1)   the  fixing  o    prices 
for  piece  work  and  of  the  time  period  for  premium  results,  and 
(2)  the  application  of  payment  by  results  to  groups  of  workers 
to  whom  individual  piece  work  or  P"-*"™  bonus  isimsuited 
It  was  said  in  the  official  reports  on  this  subject  that  the  first 
difficulty  seemed  best  met  by  "  skilled  rate  fixing  and  publicity 
as  to  the  methods  of  wage  payment  and  the  changes  therein. 
The  second  difficulty,  it  was  said,  had  been  overcome  by      the 
institution  of  various  kinds  of  collective  or  ov-erhead  bonuses. 
The  system  of  payment  by  results  and  the  difficulties  of  adjust- 
ing wages  under  this  system  in  a  way  satisfactory  to  the  piece 
workers  themselves  and  as  between  piece  and  tune  rate  workers 
was  one  of  the  causes  of  industrial  unrest  which  was  reported 
on  by  the  commissions  appointed  in  1917  to  deal  with  that 
subject.* 

Cost  of  Living 

It  is  impossible  on  the  basis  of  available  information  to 
present  here  any  accurate  comparison  of  the  changes  which  have 
taken  place  during  the  war  in  the  wages  or  earnings  of  the  work- 

1  Brihs/.  Uduslrhl  ExpcAcncc.  vol.  1,  pp.  474-475. 
•■  Labour  Gaccllc.  1918.  p.  6. 
3  Briluh  Induslrial  ExpmeMC.  vol.  2,  p.  1039. 
*  See  below,  chap.  ix. 


1ft 

ill 


WAGES,    COST  OF   LIVING,    ETC. 


ing  classes  and  of  the  co<it  nf  ti,„  ... 

enter  into  .he  consu  Jp  o  :    hi rr      "  T'""  "'"''  ''"^''^ 

Index  numbers  are  availah^  Ih, \    u  ^  "'"rkm^  man's  ,an,ilv. 

the  prices  of  food  an  lee  "'l      7         "''  "'  '"''^''^^  "' 
prices  of  other  commodit"!     r„T    '"'"7"^"""  ^""cernin^  the 
would  .how  the  raTo     rcrea  :  n",h"'"  '"'  ""  ''^^''"^  «''-'> 
The  index  numbers      "Z     u  ^  f'"'^  "'  '''l•"■•■ 

c— ities.ta.in;;hetMr':ti:r:''^^*"^'' 
^r!n::'--::^--^"^-;::trXri:n 

re.    i  pricesof  food,  we^ ^l     ~f, '"''^-^^  ^h,n.,„ 

.ite  expenditures  in   prewar      've'T    '"''''''"• ''^"P""™" 

■■n  .he  small  towns  and  ,     "     ;  ct  ^  ",'"""  ,'""  '''  ""' 
over  the  prices  for  July    VJu"  '^"'"Rh<mt  the  kingdom, 

s"ch  advances  ha  eZ,  "nv  he  '  "'  "  '^  ''"'"'"•"  "''"her 
creases  in  either  ^Uo^Z^^:^ Z^V^  '"  "'  '''"'''  '- 
"me.  Sundays  and  holidays  besides  ,h  " '"■" '•^>'  f"."  "^'er- 
omployment.  are  taken  into  c„v^  r'i  ^i  T"""''  ''^ 
s.tuation  of  the  Knglish  work-inr  '  ^"^"^'  "«'  economic 

materially  worse  than\r       "MoTeTh"'"''"^;  ^"'"'"  ''  ""' 
means  that  it  requires  more  efTo^r  "''■  '""  '^  '"■  ""'' 

"f  hvin,.     ..\s  I  m    ter  of  fv     the    u"""  ','"  '""'  '''"''"<' 
maintained,   but  suhsti.ut:!  'en     ,::'""  '^  ""'  "^'"'^ 

'n;e.ationtothe^bovecSsr;t::;^,'pr:S.- 

If  eggs  were  omitted  from  the  dielarv   m,        • 
and  (ho  consumption  of  sugar  JAT  ,      f"""  "'^"'"'""'  f"  hut.er 
;ng  |.efo.e  ,hc  war,  ,he  genera '^rcenJer    '"  T'""'  "'  "'"  ."•"-■ 

".e  u,  of  ;a,n,a,v.  ,„8,  in.ead  rfTeirg'';r;:,;M'"^:T,7  '""■  ""■  -" 

GaMlr.  1918.  p.  26.  '  ""'  "■""''"  "■""W  have  been  67.    io(,„„. 


I 


rni 


202  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

If  this  Statement  is  intended  to  show  how  a  laboring  man  may 
be  able  to  modify  his  diet  so  as  to  meet  the  increase  m  the  cost 
of  food,  it  mav  possess  interest  and  val-    ,  but  if  it  .s  presented  t,. 
Indicate  that  such  changes  nullify  or  render  of  no  acccjunt  actual 
changes  in  purchasing  power,  it  is  equivalent  to  saymg  that  a 
man's  standard  of  living  is  in  no  danger  of  bemg  low«=red  -  o 
as  he  is  able  to  practice  economies  and  make  use  of  substitutes 
Of  much  more  significance,  as  showing  that  the  above  figures 
do  not  necessarily  mean  that  the  advances  in  food  prices  have 
made  the  position  of  the  working  man  a  precarious  one,  is  the 
statement  in  the  Gazette  that  rents  of  working  class  dwellings 
are  not  appreciably  higher  than  before  the  war  and  that  many 
other  items  of  expenditure  have  not  advanced,  on  the  aver  g  , 
as  much  as  that  for  food.    The  Gazette  has  f":''.avored  to  e  ti- 
mate  the  extent  of  the  increase  in  the  cost  of  living,  taking  the 
working  man's  family  budget  as  a  whole. 
,,      .  t„m   T„lv    1914    to  January  1,  1918,  in  the  coot  of  all  the 

::;:,"  '.dvanLs  .,^..  fro.  -"'"'tird:r°"Brju.;"  m  ttele^ 

modities  is  deducted.^ 

In  July,  ion,  one  of  the  eight  commissions  appointed  by  the 
Prti  Minister' to  investigate  the  causes  "«  '-'-'""tt 
quoted  the  Labo.r  Gazette  as  authority  for  the  ^'~'  '^^ 
between  July,  1914,  and  June,  1917,  the  increase  in  .he  cost  of 
'rd  :mount;d  to  102  per  cent,  the  increase  i"  the  cost  oiying 

from  70  to  75  per  cent,  the  increase  m  the  cost  of  food  on     an 

oromcal  basis"  to  70  per  cent,  while  with  regard  to  wag  s 

the  commission  says:  "The  highest  figures  P"* J'^f"-  "  ;"'y^ 

showed  an  increase  in  earnings  of  something  like  40  or  50  per 

cent  of  prewar  rates."  ' 


1  Labour  Gazelle,  1918,  p.  5. 

2  lUd.,  p.  266.  .  D„-,„,„ 
States  Bureau  of  Labor  Statistics,  p.  47. 


Bulletin  No.  237  of   the  United 


WAGES,    COST   OF    LIVING.    ETC.  003 

and  to  recommend  such  steps  if  anv  u-  ,h  7  "  '  ""■ 

the  situation,  as  appear  practia  r  an    l^e  i::,  ",;;— •-"« 

appointment,  i;;wH;:;tZed'2:;::^:,:r,:;:e"'rr^'^ 

have  mem bned  and  whil,.  ,i,„       i    ■      ,    ,     '"  1"^'"^  «hicli  we 

had  no.  .ep.  pace  wiiit  i^::^:;^;;^  r,rr  "'rr 

necessaries,  they  concluded  that  after  tU  W  m^         '  '"""'  ""'" 
regularity  of  employment,  additionll  "tn^,:"^:':: '  HH 

bein«  in   un„,„a„/ .e^uLr  L^  r  a^ 'Tr'.'r  """   ' '"^  -" 

higher  wages  earned  by.  and  rrealer  ne  d,^  ''   "«'"'"   "''h   ""= 

workers  employed  directly  and  indire"  v  ,n  'h  '"T  ''""'•'  """  ""''<'"'^<' 
war,  has  tended  ,o  increase  corderaWy  in  """r"'""  '"  ""'"'"™»  "' 
mand  for  (cod.    On  the  nih.r  1,7  i  °""  <iirccli„Ms.  the  i„,al  de- 

p;o.v™n..  whose  ea^n;!!  rhaVet'Cn' i'n"  tt""  ""™"'  "'  "^"'"  -" 
"'  hy,„g_,or  example,  the  cotton  "pea.ies  T^  '"■"""","""*"' ™' 
wage   workers  and   laborers-are  h»rH   „  !       '"""'   "'"'"   "'   "l^y 

-.ually  bayetocurtan  their  con  uXreTn, It:'"  '"  """'  ""^ 
pnces  may  haye  been  mitigated  in  some  ^asCbv  "'V'"""'^  "'  ^igh 

made  various  recommendation  l'   ?''""'   "''  ^°™"""^^ 

and  prices  if  meats  an,   -i'  -"  '"'"  ""'  '''^'^'''"''°" 

s"PP.yof  meat.:     eam7'    S^n'TfT't'  T""™"^  '"  '"^ 

"'!« -^  "--      K^d^i^^rr'';?  ""   Price.     ,„,er;n,  report  o„ 
'Monllih  Rc-mk;  January   19";,  p  55.''^  '^"'•'"'•'  ■>"'"»■>•■  "17.  p.  51, 


204  BRiTISU    LABOR    CONDITION.   ANU   LEGISLATION 

home  supplies  and  that  reasonable  P-«»  >«  ^^^^^  ^^""^^^^  ,„a 

.ationin^  of  sugar   ,n.l  later  of  meat,   lour  ^^^^'^^^  ^„. 
scnbing  methods  of  manufacture  of  «™^'  ^^Xlj^'"^' Reprice 

;?theS"-™ut^irhas  forbidden  any  increase  in  the  rent 
iK^fo^  July  25.  ms'^BWrW,  M.s,nal  E.f.r..-«.  vol.  1,  p.  899. 


WAGES,    COST   OF    I.IMXG.    ETC. 


205 


of  small  dwdling  houses  or  of  the  rate  of  interest  on  mortgaEes 
on  such  dwellinRs.'    While  these  measures  have  not  prevented  a 
contmuation  of  the  rise  of  prices,  especially  of  food,  they  do 
show  that  the  government  has  seriously  concerned  itself  with  the 
problem  and  its  measures  have  doubtless  provided  a  more  equit- 
able d,strd,ution  of  the  supplies  avaih:.Ie  tha    would  have  taken 
place  w.thout  regulation.    Control  over  th.  ,,nces  of  commodities 
can  not  well  he  made  effective  unless  control  can  be  had  at  the 
same  tune  ,>t  the  supply  and  for)  demand  forces.    .M.iny  of  these 
forces  are  not  under  government  control  or  can  not  l)e  exercised 
m  war  times  without  affecting  detrimentally  other  and  more  im- 
portant matters.     The  real  causes  for  the  increase  in  the  prices 
of  food  are  well  stated  in  the  rciwrt  of  Hon.  G.  N.  Barnes   set- 
tmg  forth  the  steps  whicli  the  Ministry  of  Foo.l  had  taken  to 
comply  with  the  recommendations  of  the  commissions  of  indus- 
trial unrest.    "  H'l.y  prices  an-  /„V//,.-lncreased  currency  causes 
an  increased  demand  for  goods.    If  currency  is  multiplied  faster 
than  the  supply  of  commodities,  the  result  is  a  r,se  in  prices     If 
the  increase  of  currency  is  accompanied  hy  an  actual  falliuF  ofT 
in  the  supply  of  commodities,  the  rise  will   be  very  marked 
Assuming  money  to  mean  everything  which  is  accepted  in  pay- 
inent  for  goods,  there  is  probably  more  money  in  circulation  in 
the  country  than  ever  before,  and  a  great  deal  of  this  money  is 
spent  in  buying  food.    For  various  reasons  there  is  actually  less 
food  to  buy;  there  is  increased  consumption  by  the  armies  in  the 
field:  there  is  reduced  production  owing  to  shortage  of  labor  at 
home:  ships  carrying  foodstuffs  are  sunk,  and  there  is  a  scarcity 
of  available  tonnage  to  bring  in  more  .'ood."  ' 


Hours  of  Labor 

We  have  already  shown  how  employers  early  in  the  war  began 
to  make  use  of  overtime  as  a  means  of  increasing  production  and 
of  making  good  the  shortage  of  labor  caused  by  the  recruiting 
campaign.     We  have  also  noticed  that  the  government  felt  that 


20rt 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


ilic  need  for  munitions  was  so  urgent  that  it  was  necessary  to 
relax  the  laws  restricting  the  hours  of  employment  of  women  and 
young  persons  which  had  been  built  up  through  a  long  scries  of 
years  for  the  purpose  of  protecting  the  health  and  morals  of 
these  classes  of  persons.  Since  the  laws  relate  only  to  women 
and  children  and  since  the  subject  of  hours  of  labor,  so  far  as 
it  relates  to  these  classes  of  persons,  is  dealt  with  in  another 
monograph  of  this  series,'  it  will  not  be  necessary  here  to  review 
at  length  the  evidence  on  which  the  government  has  acted  to 
restore  the  legal  restrictions  which  had  been  so  hastily  withdrawn 
in  order  to  meet  an  emergency.  It  is  sufficient  to  say  that  in 
reimposing  this  lestrictive  legislation  and  in  some  cases  even 
extending  it,  the  authorities  have  not  been  governed  by  senti- 
mental considerations  or  even  primarily  by  considerations  affect- 
ing the  health  an<l  welfare  of  the  working  classes,  but  the  investi- 
gations which  have  been  made  by  government  order  and  the 
regulations  which  have  been  imposed,  following  these  investi- 
gations, have  been  dictated  p'  arily  by  the  consideration  as  to 
what  scale  of  hours  is  likely  to  give  the  largest  amount  of  pro- 
duction. 

.\t  first  the  reports  of  the  factory  inspectors  were  very  op- 
timistic as  to  the  effect  of  the  partial  removal  of  the  restrictions 
on  the  hours  of  labor  of  women.  The  patriotism  of  the  workers 
and  their  desire  to  do  their  part  in  the  prosecution  of  the  war 
caused  them  not  only  to  accept  willingly  enough  the  extension  of 
the  permissible  hours  of  labor,  but  to  work  with  "  a  spirit  of 
sustained,  untiring  effort  never  seen  Iwfore  and  most  admirable." 
The  Chief  Inspector  of  Factories  and  Workshops  in  his  report 
for  1014,'  reported  that  there  was  "  a  noticeable  absence  in  all  the 
reports  from  the  inspectors  of  any  evidence  of  increased  sick- 
ness," and  while  it  was  admitted  that  in  some  trades  it  was  found 
necessary  to  reduce  overtime  because  of  the  strain  imposed,  '.  e 
was  able  to  reach  the  following  conclusion :  "  Looking  at  the 
question  as  a  whole,  it  is  probably  safe  to  say  that,  whatever  may 
be  the  future  effects  of  so  prolonged  a  strain,  there  is  at  present 

"  Andrews  and  Hobbs,  op.  cit. 
'Ante,  pp.  54-57. 


WAGES,    COST    OP    HVINC,    ETC 


207 


«™e  the  general  order  ofhrChi"/";"""^''  ^''"'"'■"  ■^'  ""^ 
-•..e.l  ove.,„,e  U,r  wo^eL?,:  /'^ iro'/'T"--'  "- 
or  ,■,{.  hour.,  in  nnmitions  estaUi,hm.n.  ,    "    """  "  ""I* 

tions  as  ,0  meal  hours  The  'r  J  ,  ""''"  """"'  ""'"- 
young  persons  ,o  ,.  cmp^  ..""^  :/''"  ""■""""  »--"  -,1 
»'>.ch  had-  bee,,  ahohshed  i^^  Uw''^,:  "■",";  "•  ■''  ™"'''"™ 
agreement  in    luoo      Th.  ""''  ''>'  "'l"nati„nal 

regard  ,„  the  effc  of  or.ir"-\°'  "'  '■"'""'""  -■■" 
'Hat  "  while  long  an.  e^  n  «es " 'T  "°"  ••■,'  "'"  ''"''■  -« 
advantage   for  short  r^Z  ""''•'^.'■'  hours  can  I,,  worke.l  with 

-•'Hin  p'roper  lim,^"  sToT tlsTn'-r",  "'"'"T  '^  ""'  ^^P' 
production."  ■  "  ""  "'^J-^"  ""'I  «ases  in  aid 

only  .he  inspectors  ,u?  many  """'  T'  ''  ""'"'''''■■■  ^« 
fiinning  to  note  a    allL  off  !n  „     T         '"'"'">"*■  "'^^  ''e- 

;  j;sr;r,r  s -"»  r  7'  ™"- "- 

longed  to  the  Crown  or  were  en  '■'"'"■"■'   ™'"''^''  '«- 

-ent.  but  had.  under  a„  ho  "  ITth'^?,™  ''■"')  f  "-  govern- 
extended  the  scope  of  exeml^  .?  '^  °^  "'^  ^^^^"'  '^'^ts, 
in  which  the  Secretarl  o7sta  '""  f  ^  '""'">  "'^  "-^^hop 
'OSS  of  men  throuTh  enlsfment'o;?  1  ""'  "^  """"  "' '"' 
service,  or  of  other  cir~'"!°  .'""'f"^"«  ^  Rovernment 
exemption  is  nece  sari  to"  ure  the"'"^""'  "'  ""  ""'''"  ""• 
in  the  national  interest  "    Th!  '','"*'  ™  "^  ""'^  ^^1"*«d 

of  exemption  an  i  V  lo  a  L      '7"","'  ""  '^"^"^  "^^  ^^""^ 


^!=.V..S,'Sf,7i  »",„•■»,, 


.JOb  BRITIS.I    LABOR   COND.T.ONS   AND   LEGISLATION 

p.n„Usio„  to  worUon  SunOay.  an.  ^^^ ^;':^:Z!:i:!::, 

""tsenwmbcr,  lUir-,  the  MirUter  of  Munitions  appointed  a 
U  th  oTMuninon  Wo.Wers  Committee  to  cons^er  , n>  a  .  , 
„,.  cuestions  of  industrial  f^-^K"-;'  l'"""  „t  ic  r;ffici  nc     of 

"Tlffirst  report  (Memorandum  1)  related  to  Sun.lay  laton 
The  commit  ee'^ound  that  "  the  great  majority  of  the  employers 

>  Annual  Report  of  Chief  Inspector.  191S. 


|)    '<< 


LV' 


WAGES,    COST    Of    LIVI.NC,. 


•am 


time.  The  committee  concliule,!  that :  "  The  evi.lence  Wiort  the 
commiitee  has  Ie<l  them  stn,ii«|y  ,„  l„,|,|  ,|,,,  ;,■  „,„  „  "  "" 
m  put  ,>  to  Ik.  sea>re,l  a.,.l  maim.,,,..!  I„r  anv  kngth  ,„  ,i„,e 

^"f  >■  "'•^" <  ^-  ■""■'•  I-  a""»..l.     ICxce pt  for  „uite  short 

and  (l„cs  tiot  pay— oiitpm  is  „„(  increased  " 

The  committee  recomn,e,.,le,l  that  Sun,lav  lal»-,r  he  confined  to 
su,Wen  enterKencies  an.l  to  repairs,  ten.li ,,-   ,„rn.-.ces      ,"       ° 

wh,ch  cases  the  en, yes  shoul,.  he  «iven  a  res,  .h.v      n,;;:,;,: 

other  par.  of  the  week.     .\lthon«h  the  committed  feh  tlut  ,  e 
need  for  ,h,s  rel,ef  fro..,  Sunday  lahor  „a,  „,„re     r.  m 
protected  "persons  than  for  the  ad„l,  n.ales,  i,  cons  lere    .  a 

p.:^i::-=:„;;:rrr^::--'--v--^^ 

^;..e  hi.^,,,.,a«.ment  even  more  cert;i:;ne,;:;:e';;r: 

An  ituerdepartmental  committee  wa,  set  up  late  in  li,r,  bv  the 
Home  Ofhce,  the  .\dn„rahy.  the  Minis.rv  of   .Mu  it  ^s'an, 
other  supply  ,lepartn,ents  to  provide  for  the  re,ulati  n  ,^f  ," 
hct^rs  of  lal»,r  on  «over„n,e„t  work.     This  conuuit       ha  1 
statutory  power  to  deal  with  the  hours  of  lahor  of  a,lu  t  mal 
bor.  but  after  repeated  conferences  with  emplovers  in        ml 
t.on  ,n,lt,str,es  ,t  secured  the  discontinuance  of  .-.unday  lalZ  in 
he  northeast  coast  area.     This  comn.it.ee  foun.l  n,o re    Zsi" 
t.on  on  the  part  of  employes  than  o„  the  part  of  en.p  n X  o 
he    ,scont,nuance  of  Sunday  lahor.  owin^'to  the  fact'  i^h 

rates  of  pay  were  grante.l  for  this  work  and  the  claim  that    he 
h,gh  cost  of  hving  had  made  this  work  necessary 

The  Ministry  of  Munitions  ma.le  known  its  view,  ot,  the 

and  M.  M.  10.   n  wh.ch  ,t  stated  that  "both  in  the  interest  of 
Sund         r  :"''  P™'"^""""  "  "eekly  rest  period,  prefer  Wy 
Sunday,  should  be  R.ven  "  to  all  classes  „f  labor,  male    femal 
adult  ami  juvenile"  and  held  that  overtime  work  wa    m  r^ 
des,rahle  than  Sunday  labor.     Finally  in  .\pril.  10,7.  ,he  Min! 

l^<^rtitMcT'^}''Srp'.TA.K':-  "■  ^"""'"'  ^"'"^  S'^'"  Bureau  of 


210  BKm»ll    1.ABOR   CCNumoNS    AND   LEGISUATIOS 

i„ry  of  Munitions  issued  Circular  Ls>:.  callins  'or  the  Jiscon- 
tnuiance  of  Sun.lay  lul«r  in  all  conlrollc.l  .siablishn.cnts  .m  an.l 

"'Z  a'^iill  r.p.,r,  on  hours  of  work  issne.l  l.y  .he  Thief 
Ins,«ctor  of  1-actone.  in  I'.ilT.  il  i>  stale.l  in  rcgar-l  to  n.,lusir,es 
in  general,  not  merely  nimiition  i)l:int>: 

Sunday  worlc  h.i<  n.iw  been  r.ducc.l  l"  »mall  dimen.ion.:  il  U  -l.it,.l  that 
„p.rf,ncX  l.rovc.;  it  ..,  Ik:  „„,ro„ul,U-  .,,.1  c.n  h.r,n(ul,  ,ha,  cm„l.,,.-. 

?rihii  view  ami  ...at  ...  wle  at.ra.n...,  U  .1.;,.  ..  br„.B<  «..!.  »  .ncreased 
:.ie"  nn "wch  acc,M„„  .here  ha,,  in  certain  limited  are.,,  been  ...n,e  „,.p..- 
gition  to  its  rliscontinuance* 

The  Health  of  Munition  Workers  Committee  made  a  rei.<.rt 

(Memorandum  No.  .-.1  i..  January,  r.mi,  which  tleah  with  hours 

„f  work  and  another  report  I  Memoratidum  No.  IJl  .n  .\..K..st. 

lltKI    which  dealt  with  output  in  relation  to  hours  ,>t   worK. 

The  aim  of  the  committee  was  stateil  to  he  "  to  a.ccr.a...  the 

hours  of  en,ploy.nent  most  likely  io  produce  a  maxnintn.  output 

„ver  perio<ls  of  months,  or  .nayhe  eve,,  of  years,    a.i.l  ..s  recom- 

men.lations  were  n.a.le  ot,  the  expectation  that  the  war  wot.Ul  be 

of  lone  duration.    The  inft>n,iation  collected  dealt  only  w.lh  the 

hours  of  employment  of  w.>rkers  engaRed  on  the  product.on  of 

munitions  of  war   f.,r  which  the   Minister  of    Munitions  was 

responsible.    .Ml  classes  of  workers  whose  output  was  measured 

were  on  piece  work  an.l  there  were  no  tra.le  unio.,  restrictions 

upon  output.    The  committee's  conclusions  as  to  output  br.etly 

stated  were; 

I  Women  on  moderawly  heavy  work  will  not  al.ain  a  maximum  on.pu. 
it  ihey  work  ?or  more  .ban  (.0  hour,  „er  week,  and  ob„rva.,on,  «em  o 
.bow  'ha.  an  equally  good  ou,„u.  will  be  .ecured  ,n  a  work.ng  week  of  56 

'TlvomeTon  light  work  apparently  reach  .heir  maximum  produc.ivi.y  in 
a  wnrWinir  weelc  of  about  62  hours.  . 

3  For  me*  engaged  on  very  heavy  work  .he  maximum  ou.pu.  „  .ecured 
when  .be  hours  of  work  are  56  or  le„  per  week. 

4  For  men  engaged  in  moderately  heavy  work,  .he  mo«  eBec.tve  work 
is  secured  when  the  hours  are  abou.  60  per  week. 

•  Andrews  and  Hobbs.  n/>.  cil.,  p.  124. 
1  Labour  Gazelle.  1918.  p.  305. 


WXOKS.    COSTOF    ,.,v,xr..    KTC.  „,, 

Later  invi-stiKatii>ri>  ii,,,ck'  l,v  i,„.  ,■,■,„.  . 

"■"-j-«'v..n„ :;;i.;:':,;:;:n,:,:::""'""^'--'- 

H-urM^'::;'. --">  -» » -^h  ™x. , n.,.,,, .,  ,„ 

"'".'  i'l",  ''.riu'';/"" """  "'.'^' ''"""  '"    """"" "" ' ' '" 

*•■   ''ifli-fn  V. mills  nil  liiriit  11 

w"k..M.5,,,.,,.,Jtr;:,';G^'i:;;.;r'^ •■•" •■ » 

M.^  and  .r;;:,::::^  zr::::;:^:rz  z  "rrr"- "-  -— 

worked  .„d  ,h.  ,„cre.,cd  wnrrv  an  I  a  L  u-  ,o   "     ?'  ''■"""'  "'  ""  ''-" 
of  work.  ='""">  ">  m.i„,a,n  output  an,i  quality 

4.  It  i.  ],.,ble  ,,,  ,,,,,,,,  „„j„|^, 

those  who  have  to  i-avcl  l„„„  i^'     '    '      ,         "'"    ^'-'l'  "vailaM,-  f„r 
.Kcul  iu,„„„ance  in  the  ca.e  JZ^;^a„^""'  "'"  -"<•  »  "-"er  o, 

5.  The  fn„g„e  entailed  iner.a^e,  tl,e  l™  ,°,  ',„  , 

While  the  committee  ha,!  not  fonn.l  thit  ,h.    ,    ■       r 
out-s  haf  cattsecl  any  Prions  hreawl    ^  ,  n^  : ^^I^  '"'^ 
had  heen  many   nthca'ion^nf  t-,,-  ,       '  ""  ""rl><T.s  there 

Hence  ten.hn,  to    how  tha     he  T    "'"'  ""''^  "'"''"'  "- 

selves  felt  o,"  ol,l      In      ,,",',"  """"""'■  '"•'^'"^  ""™- 
/p„„„,,-„  .,.,„,„.,,„,:„'"    '"'::  -ff-'"*-'  'nu,,  physical 

Sta,i.;"::C'LT'p.'2l^'"''""''"'"  ^o-  ''■  ".."^.in,  U.  S    Bureau  of  L,,,„r 


212  BRITISH    LABOR    CONDITinNS    AND    LKOISLATION 

inlirmiiy.  One  tiling  brouglit  out  in  this  rt-pori,  as  \vt.-U  as  in 
that  "f  the  Chief  Inspector  of  Factories,  was  that  the  increased 
pay  resulting  from  overtime  had  enabled  the  workers  to  secure 
better  fcMxl  and  greater  material  connDrl  generally  and  these  had 
helped  to  counteract  the  strain  of  long  hours.' 

The  cotiimittee  sIkjws  much  sympathy  with  the  4S  hour  week 
so  strongly  urged  by  many  persons.    To  make  it  a  success  would 
however  reiiuire  a  reorganization  in  factory  management  which 
would  be  difficult  to  bring  about  in  war  times.     The  committee 
recomniendeil  that   fur  adult  males  the  average  weekly  hours 
(exclusive  of  meal  times)  should  not  exceed  I'.r,  to  Cm.     Hours 
in  excess  c]f  this  should  only  be  worked  for  short  periods  and  to 
meet    sudden    and    unexpected    circumstances.      The    overtime 
should  be  concentrated  within  three  or  four  days  a  week  and 
when  overtime  is  worked  there  should  be  no  Sunday  labor.    For 
women  and  girls  the  commiiiec  held  that  "continuous  work  in 
excess  of  the  normal  legal  limit  of  (;n  hours  per  week  ought  to 
be  discontinued  as  soon  as  practicable."     Some  reasonable  time 
should  be  allowed  for  readjustment.    For  boys  employed  to  assist 
adult  male  workers  the  committee,  "  though  with  great  hesita- 
tion." recommend  that  they  be  allowed  to  be  employed  on  over- 
time up  to  the  maximum  suggested  for  men,  "  but  every  effort 
should  be  made  not  to  work  boys  under  10  more  than  OO  hours 
per  week."  ' 

The  committee  recommended  day  and  night  .shifts  in  prefer- 
ence to  overtime,  but  did  not  desire  it  to  be  thought  that  they 
regarded  night  work  as  a  good  thing.  The  arguments  against  it 
were  that  it  was  uneconomical  because  of  the  higher  rates  of 
pay,  supervision  was  fre<iuently  unsatisfactory,  conditions  of 
lighting  seldom  good  and  workers  got  less  satisfactory  sleep  in 
the  day  time,  and  the  unfamiliar  meal  hours  were  likely  to  'le- 
rangc  digestion.^ 

The  conclusions  of  the  committees  on  hours  of  work  were 
confirmed  by  the  .scientific  investigations  into  the  nature,  causes 
•  Bulletin  of  U.  S.  Bur,  Labor  Slat.  221,  p.  21.     Annual  report  of  Chief 
Inspector  of  Factories,  1915,  p.  9 
-  Hours  of  Labor,  toe  cit.,  pp.  25-26, 
>  Ibid.,  pp.  26-28. 


if 


l\ 


"A'WCS,    COST   ,„■■    LIVING, 


■?13 


A'lvanccment  of  Science'  :,n,i  Uy    h     '     ■^'•^""="'"n   for  the 
"'jnry  ( Memoran.Inn,  V..  .  "      ''""'  ™  '■'*™*-^  ■•'n<l 

«■"'  ^^'.rls  ,  Memora,,,!,,,;,  ■  ,  , ,  f  ,  ""  ™;Pl">""^nt  „f  u„men 
•Mt"mi„n  Workers  C  •  ,nutee  t",  "'  ""  '  '"'  ""■■  "•^■''"h  "f 
"'■•"  "overtime  lahor  is  .hysioIrtri'Mk"'"  ,*'"""™''''"  ■■'*^'-«'"<^nt 
'rava«a,„  "  and  ,|,at  •  ,  ,:.,,C'  '  '^  '''"'  "•onomically  ex- 
The    intenlepartmenu.       ,         f  "J  achieving  its  ohject." 

I'ron.pt  i„  „,,,ki„     „,^.  „f  V,""".      ■    ""  ,''™'"   of   Ial«r   were 

■he  Health  ,,fMuni,i,,n\V,,rs,;r  T  '•^^"'"^emlations  of 
;"'V'-''-e(,mce,L  r;^^™';;:-'-Sep-en,,,er«, 
'ory  rnspecion  )  sent  to  employer   Vr  .'^^■'""■'""■"1  "i  l-ac- 

reeanling  the  h.,t,rs  „f  lal"  r  „  ?  '"',"""  ''■"""^-^  =>  '"'er 

'■  after  ,h,e  e„nsi,;,,a,  ,      '"      "  ""''  ''"''""'"  ->'""^'  "'at 

"orkers)  comnnuee  in  this  respect  t   1  '    "'  "^  "'""'''''" 

Panyin.  the  letter  .as  gener:   o' iTrKo"  t;?"",""^"    t'^"- 
I'ours  of  „„rk  of  unmen  in,!  ,  '^     '"  "■emulate  the 

•;-  factories,  inch,,,™^  ^^i       :;^,i;'^^""-'"P'"ye.l  in  tnuni- 

'l'eoccnpationof,heCro«nan,l"      '     ^,71'""'  ="'  ''"'^'  ■'" 
Tl.e  or,ler  hecame  effectiv    on  O-  ;"""'  "'^'''i^hments."  « 

over  might  he  employed  not  , '  e     e,  ^  ?"'  '"'"  '"'  ''"" 

hours  per  week.  .Several  schemer 7  ,  '"  °"'^  P'"^"  8^) 
one  of  which  ntn.  ,,,  ZnJX  C  ^7'"-™^-'  "-e  offered, 
factory  hours.  Some  o/t  *'  Jn  X'T"  ^^  ■---^-^' 'he 
i+  hours  each  ueek  an<l  regula  Tn  en  '  f  '  7''  """'""  "' 
provuled.  \\-on,en  nti^ht  wo  I  .,  ,  f  "^  """^  ''"'  '"  be 
by  a  woman  welfare  wor  e  or  "  n""  '5 ,"  f  """'>•  '^"P"-'-'! 
end  volunteer  workers  mthtle  eir  ,'  7"'""^"-  ^^'^^ 
the  superintending  inspeZ  '    ™'  '""'  ""=  ^^^'i™  of 


214  BRITISH    LABOR   CONDITIONS    AND   LEGISLATION 

Further   investigations   made   by    the   Health   of    Munition 
Workers  Committee  under  newer  conditions  which  have  devel- 
oped sliow  that  the  earlier  recommendations  of  the  committee  as 
to  the  number  of  hours  that  might  be  worked  need  to  be  revised 
and  that  "  the  time  is  now  ripe  for  a  further  substantial  reduc- 
tion in  the  hours  of  work."  ■     The  committee  calls  attention  to 
the  fact  that  conditions  in  industry  have  gready  changed  during 
the  war.    Older  men  and  more  women  and  young  persons  are 
being  employed  and  they  arc  doing  heavier  work  than  formerly. 
Both  employers  and  workers  are  coming  to  recognize  the  undesir- 
ability  of  the  long  hours.    "  Whereas  at  the  beginning  of  the  war 
there  was  a  general  lielief  that  longer  hours  necessarily  produced 
larger  output,  it  has  now  liecomc  widely  recognized  that  a  13  or 
14  hour  day  for  men  and  a  U  hour  day  for  women,  excepting 
for  quite  brief  periods,  are  not  profitable   from  any  point  of 
vicw"=    According  to  the  reports  of  the   factory  inspectors, 
there  has  been  a  great  change  for  the  better  in  regard  to  the 
number  of  hours  worked  in  all  classes  of  factories  since  the  f\rst 
year  of  the  war.    "  The  general  tendency  has  been  to  restrict  the 
weekly  hours  of  work  to  an  amount  very  little,  if  at  all,  in  excess 
of  those  allowed  under  the  Factory  Act,  an.l  to  arrange  for  more 
elasticitv  in  the  daily  limits."  '    The  report  m'  the  Chiel  In-^pector 
for  I'JlV  says  that  the  employment  of  women  and  young  persons 
for  hours  in  excess  of  the  maximum  legal  limits  of  the  ordinary 
provisions  of  the  Factories  Act  is  now  rare.' 

Holidays 


Closely  related  to  the  subject  of  hours  of  labor  is  that  of  holi- 
days The  importance  of  holidays  in  the  life  of  the  working  man 
or  woman  has  been  thoroughly  appreciated  by  the  government 
departments  concerned  with  the  production  of  ships,  munitions 

>  Summary  of  rcnort  on  weekly  hours  of  cmploymcm  I  Memorandum  No. 
20)  in  uSr,.  S.U-  of  U.  S: Bureau  aj  Ubcr  Sm.sfcs.  February,  1918, 

""'!  Weekly  hours  of  employment   he.  cil..  p.  86. 
'Report  of  Cliicf  Inspector  of  Factories,  1916. 
•  Loiwiiir  Gazelle,  August.  1918.  p.  345. 


W'-^CES,    COST   OF    L,V,.VC,    ETC 

'" 'h,.s  as  ,n  other  matters.  '"''  '''  ^""  "''r  exigencies 

^ri  July  -"^S    ]*(H' 

-thorityof-.h'eDeflns; oft:  !<;!;;•??  "l^  '^-^<'  ""^er 
'he  government  to  .,„spen,l  the  „s„  t  /Y  ^"■'"■'''  ="'"'°^'«'l 
o'«ervance  of  such  hohdaysUil  .'''?''''='•"  "''^^-r  the 
""".on.  repair  or  transpor  of  1  "  ■'  °'  '''''>■  "'^  P™- 
"ecessary   for  ,he  succe  sf  I  nr  """"'"'  "'  °'  <>">'  work 

,^-n..er  ..  ,,,;,  an  ^r:,/;'    rTr™  "^.  '^^   "-■• '      On 
'    '-^K'     to  reqnire  employers    o  1.    ,  """^''  "'"'^h  made 

''=>>'  as  a  holiday  in  plicCf  tie  ^"''  '''"P'":*'^-^  »°"'e  other 

^rovernment  order  umr      ;^  ^.^  ^  -;>  h-,  heen  omitted  ^y 
Circular  L2;i  iss„e,i  ,1,:     '        ,     P"'™'  "f  ''me.'  ' 

-a.es  that:  "  Th/ mL  t^^^  '^f  ^^^-'^  of  Alunitions 
some  holiday  period  hoth  for  ,h}\,,T""'  ""^  "«<^^-'ity  for 
f^o  for  the  overhauling'an;  ,:'''',  "^^  »-^  I'eopl^  and 
'"  grantmg  such  holidays  care  it  h\  "'"^■'"""J"'  "  asks  that 
O"  put  of  munitions  he  not" l  ?  "'  ''"^  "'a'  "'e  regular 

-  that  in  so  far  as  it  ,°  S  T"  "'^"  ''^  "«--" 
bu.Wmg  establishments  in  the  ,1  ^^  ''"  "'""'"'""'  ^nd  ship^ 
days  of  the  same  length  .,  L  ^Tme  ;  '"':  ■^'""'''  '^""'  ho"^" 
'he  usual  custom  of  th      ■         T'  "'™  an<l  u,  accor<Iance  with 

0"'er  607.  dated  Ju.  ,,-      ,    , 

required  the  employers 'm  controlled  e.!  n'-f'"'  °^  ^f""'''™-' 
the  custom  of  the  districts  ortr!  """"''^'""•^"ts  to  observe 
■n  regard  to  the  summer  IZTZT^^'f  ""'  '>-=-  ">ade 
by  agreement  were  not  to  xce«  on  '  'T'"''''  ''"'"  ««d 
approved  by  the  Minister.'  ft  ha"'  ,,  -  ;  '"  '™«"'  ""'"'^ 
ssue  an  order  (Ko.  e,C„.  Septemb  rt^  T,n  ""  "'^"^-^>-  '° 
ta,n  days  as  "rest  days  "  in  contrnL  I       '"'"?  aside  cer- 

■  "nWM  !„dus>ri,i  £  ;  .         ™"*™""1  establishments.' 

^*'rf.,  p.  294. 


216 


BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 


Welfare  Work 

One  of  the  most  gratifying  results  of  the  industrial  trans- 
formation in  Great  Britain  during  the  war  has  been  the  growth 
of  welfare  work  in  both  private  and  public  establishments.  A 
considerable  number  of  industrial  establishments  had  already 
established  such  departments  before  the  war.  Thirty  fictories 
having  such  departments  sent  representatives  to  a  conitrence  at 
York  in  1013.'  but  progresj  in  this  direction  was  greatly  ac- 
celerated during  the  war.  There  are  at  least  three  reasons  for 
this  rapid  development.  (1)  The  tendency  to  concentrate  war 
work  in  large  establishments,  where  the  absence  of  close  personal 
relations  between  employers  and  employes  made  some  form  of 
supervision  of  the  workers  desirable;  (2)  the  rapid  substitution 
of  women  and  young  persons  for  men,  which  meant  that  em- 
ployers must  find  some  way  of  making  their  factories  attractive 
working  places,  and  the  conditions  surrounding  the  home  life 
of  the  workers  safe  from  the  standpoint  of  both  health  and 
morals;  (3)  the  stimulus  furnished  by  the  Ministry  of  Muni- 
tions to  the  owners  of  controlled  establishments. 

The  first  point  receives  emphasis  in  the  report  of  the  com- 
mittee appointed  by  the  economic  section  of  the  British  Asso- 
ciation for  the  Advancement  of  Science  to  investigate  into  out- 
lets for  labor  after  the  war.  "  One  of  the  tendencies  of  the 
war,"  says  that  committee,  "  is  clearly  to  transfer  a  more  than 
noriiial  proportion  of  the  nation's  business  to  large  concerns. 
Though  this  has  its  drawbacks,  the  balance  on  account  is  prob- 
ably to  the  advar  tage  of  the  women  who  have  entered,  as  far 
as  the  safeguarding  of  their  lives  is  concerned,  and  consequently 
of  that  of  the  men  who  will  return."  '  Only  the  larger  plants 
could  well  aflord  the  eNpense  of  a  well  organized  welfare  depart- 
ment, but  given  a  sufficient  number  of  employes  the  cost  of 

iWW/orr  Suprnniion  (Memorandum  No  2  of  the  Heallh  of  Munition 
Workers  Committee),  Bulletin  No  ^.'2  of  U.  S.  Bureau  of  Labor  Statistics, 
p.  24. 

a  Draft  Interim  Report,  1915,  p.  6. 


WAGES,    COST   OP    UVINO,    KTC 

-^ber/X'r:,,::,^   -'>-".   persons    in    ,..,e 
"^odat,ons  for  ,he  worker,  l«th  'Ti         ""''''''"'J  ''«'"  ■•'ca.m 
.Hous,ng  accommodations  wx^    f!     ,'"  '"''  "'"'"•"  'ho  fac  o™ 

«"th  when  women  were  emni       i"™^"  ■"•^'"""ents  Leine 
ployed     "  T„  !     ^  ""^''^  '"  '""ories  where  ""P'-'»<^"i<^nts 

women  workers.  The  Health  ?T,  "'''""'"'  ^"^  '^e  care  of 
appointed  by  ,he  Mi,  ^s.^X  . '  """'■™  '''-''"»  Comm  „ee 
e-specal  attention  to  the  m!L.  "'  '"  September,  Iftlwlv, 

'han  six  memoranda  oMh'suh    T^"'  ''"''■  ■-"n^    oTe 
and  August,  im.'    Som    of  the'     ''"""™  ^'''^•^""'er,  m 
-""tee,  hke  that  of  estawTshin.     /'""""'^"''■•«'""^  "f  the  com 
acted  upon  by  the  Min  s  f  "^ '"f  ""t'  ^^"'-ns,  were  ,    Zl 
a  Welfare  Department,  under   h  "r "'''""  °^-f="'"-y.  me 

■  ^-  Bureau  of 


218  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

tr«,  a  manufacturer  well  known  for  his  intert-M  in  these  matters, 
was  establishe.1  by  the  Ministry  of  Munitions  to  give  effect  to 
the  recommendations  of  the  Health  of  Munition  Workers  Co.n- 
mittee's  recommendations  ■'  with  regard  to  welfare  supervision, 
especially  with  regard  to  women."  '  ,,,,•• 

The  general  purpose  of  the  Welfare  Department  of  the  Minis- 
try of  Munitions  is  stated  to  have  been  "  to  raise  (lie  well  being  o 
the  workers  to  as  high  a  point  as  possible  in  all  factories  engaged 
in  the  manufacture  of  munitions  of  war,  etc'     Not  all  the  wel- 
fare work  undertaken  by  the  department  had  to  do  with  the 
health  and  comf.rt  of  women.    The  Health  of  Munition  Workers 
Committee  distinctly  str.tes  in  one  of  its  reports'  that  "  a  suitable 
system  of  welfare  supervision  would  be  of  advantage  in  muni- 
tion works  where  .".OO  adult  males  or  KlO  boys  are  employed. 
The  Ministry  of  Munitions  recognized  this  need  to  the  extent 
of  issuing  a  memorandum  to  welfare  supervisors  of  toys     in 
March    1917.     Tn  view  of  the  fact,  however,  that  the  work  of 
the  Welfare  Department  was  limited  for  the  most  part  to  the 
supervision  of  the  welfare  of  women  and  boys  and  that  this 
subject  has  l«en  adequately  dealt  with  in  another  monograph  in 
this  series "  it  will  be  necessary  here  only  to  indicate  the  scope 
of  work  undertaken  by  the  department.     The  work  includes: 
(a)  seeing  that  clean  and  wholesome  workrooms  are  provided 
and  that  the  work  is  suited  to  the  capacity  of  the  worker;  (b) 
providing  adequate   fai  ilities  for  securing  nourishing  food  at 
reasonable  prices,  and  under  restful  and  wholesome  conditions; 
(c)   regulating  the  hours  of  work  and  providing  rest  periods  so 
as  not  unduly  to  tax  the  ,vorkers'  strength;  (d)  seeing  that  the 
wages  are  sul=ficlent  to  provide  for  the  physical  efficiency  of  the 
worker  and  allow  a  sufficient  margin  for  reasonable  recreation; 
(e)   seeing  that  suitable  cloak  rooms,  lavatories,  toilet  rooms, 
overalls,  etc.,  are  provided  to  enable  .lecent  standards  to  be  met; 

1  nrtlhh  Industrial  Expirimcr,  vol.  1,  p,  483. 

=  Ibid.,  vol.  2,  p.  1058.  . 

>  Memorandum  Ko.  2.  loc.cil.,  p.  a. 

'  Brilu/i  l«dus!rial  Expcncnce,  vol.  1,  pp.  493-4W. 

»  Andrews  and  Hobbs.  of.  cil.,  chaps,  xn  and  xin. 


fit 


M.3 


WV-.ES,    COST   OF   LIVI.VG,    ETC. 


219 


ris  ,  '    '-llI.NG,    ETC. 

(')  cndeavorint:  t.i  re.ln,-,.  .1,      i 

---",;  ,g)  Vovi,;  ",  t2-  .'"  "■»  an,l  lu.,,,,  ...  , 
'"^■'re  a  good  s,a„j,„,  „\  ,Xwrr'""  ?  '-^  "^^'■^^•■->-  '» 
;-n«  that  the  worker,,  are  ea  Z"',  '  """'"^'"^  '^' 
oren,cn  an,l  ,ho,,e  in  authority  "      ■"""  ^""■^"■'■■"tion  by 

for  su,tal,le  recreatio.  o„tsi,l  '.if'  i  'r'   ,'"*'  '''^"''  "^"""^y 
'hose  working  under  .strain  o    In  '"'  ''™'"'  ''P'"'"y  for 

;"S  'o  see  that  adequate      ;,eT™M''r  "'"'-■  'J'  ™''^'-- 
f^"">  --k  are  pro'vided;    I  ji'';', '""f"  f^^'""-  '"  and 

-".lafons,  food,  etc.,  priv  d«l  by  the    "     "  '"""''">'  "— 
'he  pnce  reasonable  and  stner     •,  "'"''"'">'  "'^  «"'«'  an,! 

d.t.ons  and  morals  of  boys  Ind  ell  ,'"  '"  ""'  "^""^  -"- 

\el,are  Department  con  erns  Le      J.T'r''-     '""""'f^f-  "'^ 
'loes  not  deal  with  all  of  them  bW,  '"  "''=-^''  '"^»"^.  it 

t-™"  of  labor  to  the  P  o  ^r  t  e^  ''''/^'"-™'' -^'-ers  as 
--J'er  of  ,„„„.„,,  ,„  the'local    d  "":       ''"""™''  ^""  '"' 

The  Welfare  Denartmpn.  ■  '""'^y  committees.' 
-—in,  forXn^^w::;"!{!!">-'  -  «-"  a„d  to  se. 
a-".st  m  hiring  workers,  keep  rec„  i,  ^"r  ""^'^^^^ '^"P^visors 
.-'e.s  of  pay,  inyestigate  compWn,,  :  '  ""  ''™'^-'^"  ""e  and 
-fi:  conditions,  canteens,  resTrooms  ho  "''"'•  ''""""^  "-rk- 
aml  recreation  facilities  and  conl. Ins  T?  ■''""  '"""'*  f^^'i"" 
'■°n^  .n  order  to  giye  to  owner  '™1  T,'";  '"■"'■''^>-  "f  A'"-- 
"  most  encouragement  ,„  carrt  L  u  "'  "^'""'"'hments  the 
of  an  approyed  welfare™  "rlr't^  ^™^'^- •-"'«- the  salary 

other  necessary  equipment  to  lee"ed  a  "V  "'"'"'  -^ 
a  lows  the  cost  of  canteens  as  expend  t  '""'^  "P^"''^^  =""' 

of  out  of  capital,  so  that  k  may"  .T  ""'  "'  ''''""'  '"'^^^^ 
^-.tatton  of  net  profits  under  Pa^  oTtr",;"™""'  '"  '^^ 
The  cost  of  cloak  rooms,  layator  es  et"  """'■"'""■'  ^^ts. 


2O0  BRITISH    LABOR    CONUITIONS    AND    LHOISUATION 

of  welfare  superv.sion  has  ^^"  ^l" J      ■,,„,^,  tlie  «ork  on 

tr.  see.s  to  have  justified  itself  ..y  its  resu  -  ^^^^  .^ 

The  efforts  of  the  government     >   "^^f  "^Vr^^  i-'"- 

factories  during  '^-^^^^  ^  P  h  ertlories,  etc.  tMi-el- 
tries.     On  August  J,  \nb.  the  i  oi  e  ^^  ^^^ 

,3„„,„  ,.™visions)  Act  --^5^'';^  ;'  i„  of  factories 
partment  was  authorized  to  '-"  "L'''  ^'^  "^'^  ^ ,  f„,  preparing 
or  workshops  to  make  necessary  """^  „i,/clothing, 
or  heating  and  taking  meals,  the  supp^>  ot  1  ^^^  ^^  ^^^^^ 

ambulance  and  first  aid  arrangements,  ^^^^^y  j„,  „„,h. 

in  workrooms,  facilities  for  cashing,  accomm^  ^     ^^^^^ 

^^^rB^Bi^:^^' ...  - 

No  orders  were  '^*"^''  """.  „,d„s  were  issued  requiring 
October.  1917,  during  wh^h  '"""'^  ;™  ^„^  ,,,,  {.stories  and 
suitable  clothing  for  workers  in  tmo    ^^^J  ^^^  ^„. 

for  women  employes  requiring  ^»'^ble^«o  ^^^  ^^^^^ 

ing  for  ^'^■^y^^^^^l:^^.  drinking  water 
and  washing  i^^'^''f:^^'°"TLr,  persons  and  requiring  first 

Housing  Conditions  and  Legislation 

■„  rr^,i  Britain  which  even  before  the 
The  housing  situa  .on  mG„'^B^^^^^    .„  ^^^  ,,,„,ated  that 

rbirmX/'^oSo'cottages  were  needed,^  became  much 
'^"nd'fATs,"' ?°''s«°'.lso'B?S;r;»d2,.r«l  Experience,  vol.  1,  PP. 


VVAGES,    COST    OF    UVISC.    ETC. 


"'    ■-iVl.NU,    ETC.  001 

more  serious  a*i  th*  "" 

difficulties -na.le,;,::;;,::;",;;^'^  -'  -  «nancial  an.l  ,„,or 
iO'r  competent  person  ,:  ,;';",'"-''  -"-  "ifficult.  m 
"quired  in  EngUd  and  ™,  V  ^  ■,"""  ^""''"•"^  ""' 
classes  were  to  be  met.-  Th  Hoi  1  r-r''''^  "'  ""■■  ''"'^'"S 
of  IsWi  and  l.joa  which  V.h^''"  ^""■"  '''■■""""«  Acts 
Board  to  furnish  fina::;::f  ,^^:-  ^l^  ';'-.  (,„ve,tn,:;: 
to  carry  on  housing  pro iectsh,,  "»»"c,,,aliti,s  .loiring 

their  purposes.  '^    '       '  ''"'  "Wa^ently  failed  ,„  accompl.sh 

resulted  in  great  congestion  !'l  1  ',"'"""  ™""'-"-'"^e 

"""■•ties.  Lack  of  sultl  1  houl.  """''""-'  '"  "'^^^  ^o™- 
'he  causes  of  industrial  dsciT.rrr"''^''""  ''^  ™'  "f 
appomted  to  study  this  subject  ^1-'"'  ''^  '""  ~-^--sions 
however,  Parliament  ha.l  acted  wth  ''  '*'""  ""'^  ""■•■■• 

^■'"ation.  At,heveryoutl're\kof  h  "'"  '"  ''"'"'>''">^  "- 
two  acts  were  passed  one  o^^^,  ,  r""'  °"  •■^"*''"^'  '"•  '''H. 
ment  board  to  assis  anv  a  .  h  ?^'""'^''  ""^  '""'  K"vern. 
profits  to  5  per  cent  brmakitT'""  '"'''''  ^^^'^''  '''"'>«l  its 
capital  of  such  soci^ies^-nrT.h  "'  '"  ''^'"'^  '^"^^  '"  'he 

the  same  act  the  commission  rr^ks"  "^^  ''""  ''""    ^y 
of  the  Treasury  given  power  "L  '"'""  ''"''  "^<^  consent 

buildings  and  'o'build'dl^Lg  T" Th"  """"'  "^ '-"  ■•"'■' 
housing  of  persons  employed  \  „r  n7<   I  ?/  ""'  '™''«'  '« 
departments   where   suffiaen,  'iwlir  '"  "^  government 

available."  '"'  ''"^"'"8  accomodation   is   not 

^^::::z:t::^  '^'r ""-""™ "-  the 

limited  in  its  operation  to  oe.rior","';  "^''""'•'  '■>""  «- 
no  considerable  unemployment  d  velon  T  u  '"  '"'''^''  ^s 
advantage  of  and  doe^  n^ot  2^":^^^^  -'  »-  -'  taken 

-.onofanvunoccupi^lla^r;;—  nZ- 
M-ijnusson,  „/,,  „;..  p  221  '' 


I  »  i,  ,t 


...,.,  BK.T.SU    LABOR   CONDiTlONS    AND   LEC.SLAT;0N 

::wn,en  employed  in  -nee...  wi.|.  ''-;;  ;-;;"  ^'.^^ 
0,e  Kovernmen.  would     o.ake.n  ^     ._^^^._^^  _^,   ^,,^ 

increments  or  decrements  "'"'^'^  ''"L„,,  „nhe  Kealm  Acts 
^a.  •    It  is  under  the  authority  ot   h    IX    ns.^  ^^j^^.^^,,^ 

„,      the  Ministry  of  Mun.t.ons,  "^'■'  '^^  ^^J",-,„  Ok-  working 
have  assisted  in  '^e  construction  of   hou  -        ^^^_^.  .^^_^^  ^^^ 

r'^^i;'i;nm^r.^    'p""T,:;e.penditur^^ 
tTLI^^'T^^^y   hive'^een   hy   compar.son   u..- 
n'fi""'''         ..  ,    ,„  ,l,e  Ministry  of  Munitions  has  falleti 

Theexpen-  '^.T  «=,  \  tc,  ants  to  nn.nicipahties  and 
under  three  heads;  (D  '"""  J^  ;  permanent  housuig 
employers,    CJ)    loans   to   contract  r  pe  ^^^_^^_^^  ^^ 

sch'emes,  and  («)  direct  -'-"  ^^^^  1,,,L,  establish- 
temporary  housing  m  the  -"=^'";^Xed  has  been  undertaken 
ments."  '     Most  of  t  e  --^  -    ^^  f  ^cluses  the  land  and 

i-^r;:^:a^^:h..^^^ 

after  the  war  at  the  value  ^^^  ^^^^^^^^  ^t...r  the  si.ua- 

Perman   tt  ^o^^^^l'^^^^Z^^'^^lr.^.^.y  housing  was 

tion  made  th,s  poss.ble.    •^^"'^Jf "    f^^,„    ,  '^..  in  the  long  run," 
necessary,  it  has  not  been  found  sa^tsfaco)  ^^^^      ^^^.^.^_^ 

says  the  Ministry,  " 'h"^  ca"  '«  ™    \  ^      -r,,,,  ,,,  a  sav- 

of  temporary  =''=--'""''^'2l    expen'mure    involved,    but    the 
^eat'UlToirrneyTit^rdbrmg  no  return  of  any 

^■liorary  housing  by  the  Mn^ofMunit^-^^^^^ 

;rir::i"ui:^-~--"''^^'^°'''^' 


«..o.s     COST  OF   L,V,.V<;,    „C. 

""I  «-.r..  a  failure.     \(anv  ,,f T         "''■     ""■  ^""'^'  "  is 

""■«'  o"  l.y  .he  Local  f;o  e  n  J  ,  '  r?    'r^'   "'"■<  ''-  '-" 
'■onerof  \V„r|<,,„,|,^  ;""^  ■'  R"ar,l  ami  ,he  Commis- 

"••^-  -\'.«  of  ,he  work  , Hie  1  ;  /^'^  ',''  ''""■  ''"'"  •-""! 
"  '-^  -^i'l  .'.at  ••nu„,er„„,s  t,   v  k  h.  "'  ?  ''""  "'  ^"""^  -^"'1 

™nt  con,n„,n,„e.  under  .h,,  rnh  ""  ""'"'"'  "^^  ""'"- 
Actofl.,0,,.".  The,,rHceo,Jrh""'K  ''''""'''"  "^  '"^ 
-e  cons.rucion,  especially  a    t  ^T   u"^"'''*^"  ""'"■ 

A  recent  memorandum  issued  bv  ,h  "  ■^'"'"''' 
ol  'he  Ministry  „f  Recons,  i,  ^  el,  '-'u^'  "^"'"''"^  P-^l 
"ea,edbythccessationofUd|l"V  '  "'"'  "''^  <^n'"jfency 
'  -  '"  make  up  ,he  defi  i ^  '  ^.t? '''---nd  estil^ates 
.h-.'  year  after  the  war  '•  250  0  o  h  "'"''"•^'  '"  '^"'W  ''" 
V5.«:'«   for  each  year  after   19       1T\  "''"  =""  ="'"''-nal 

r;r;:tj"----e.Ls.-t:^:-:,:: 

-tfrlrS^Ini-r^-rP-^e  the  entire 
■■eachcl  their  normal  level   when    h  "'''"'"*«  """'  Prices  have 

the  local  authorities  at  prtsad^ed'tf::''  '^  '""'f"™"'  '" 
a'.'hor,t,es  should  act  as  agent  of  ,h'  ,"'  "'°"''-  ^^e  lo.al 
Prope^y  and  collecting  the  fents  •  ''"''  '"  "'^">g'"g  the 

housel  aTdTtZn  !l"  rts^Serh'''^"""^""-  "^ 

December,  1915.  a  law  was  passed  r  ?•     """^  P™"^"-    I" 

;  M,^u„on.  ,,/„„,«„  ;f,„,^''P"^^''  ^"tnctrng  the  increase  in 


„n..  ana  tax.»  .m  .mall  hou«.  a,  ^^J^J^;;;:::::::.,.,.  aU 

J,,„,,«la.i.m  of  i.c  ""■"""  y^".:  ,,„.  A  central  biUet- 
,hc  ILlk-tinK  ui  Liv>l,an.  •^'^  "'  ^^^J  ;,,„j„i„ns  ami,  when  .t 
,„^  Uard  tnakes  a  ,urve>  "  >  "'^^  ^  ^„  ,„„ae.l  up.,"  the 
fi„asU.ol.neces,ar>    -a,       «»W^^^^^^  „  i, 

civil  ,».l.ulal.u..  .n  'l-  "^    \     >    „,,,  ,.,  |„,let  a  working  popu- 
bad. 


UNEMl'LOYMtNT   ANU    ITS   KEUtK 


Ma.n,ew,,e„t.ena.™l,a.b«ne^.;n^;;--^ 

„,  ft,,.,  .„mc,e,U  workers  to  ^"W^  ,  ,7; ,  ,  ,eriou,  problem 
U  ,.  evi.lent  .ba.  "™'">>'">"::;;l'™;i  -avoidable.  We 
and  such  as  did  ex.st  «'"  '  '«  ;*f  ,  „Ued  d«rin«  the  first 
have  already  discussed  the  ^'""^^^.^  ;„„,,„  „(  I'.H.".  unem- 
year  of  the  war  and  have  seen  that  by  the  ^^^^.^^^ 

'ployn^ent  had  reached  the     ,wes         e    n,  ^  ^^^^^  ^^  ^^ 

ha.l  been  known  snice  ^'•""-  '"  j^,^  „,,  ,,orse  since  that 

collected.  ^■->"'"'">"t''^^^":U™e  of  unemployed  amonK 
time.    Generally  speak.ng  the  ^'^^f       ^^„,_,„  „„ch  of 

„ade  unionists  has  ^^l';;\'^llZ'^,^-  '^^^  ^""='"^"  '" 
the  tim.  less  than  one  ha  »  "™f;^  ^  ;„,,  unemployment 
the  tra-  es  whose  members  "'  '";"  ^  ^as  been  almost 
under  the  Na.i-aUnsu^  AcM  1  a«^  ^)^        ^  .„ 

mode  of  relief. 


*^'^'=^    COST    .,p    ,,,,,^     ^.^^. 

"■'H'n   only   .r    ;      ;"""  '"  '«>'■  I'--"  rc.„.  ,<,,      \  ""  ""'" 
«•••"•  have.  (,«„, I,'    \      '"""'>'''»-"•'"•'- ai  ,1,.  ■':'"'"'■"  '-V 

«-'- r,;;;:n:;l-  •,.         "■'"•' 

of  the  war"  i     'T     '"'  """>-f».«.r  ,v       ,''■"":''' ^"^  ''^  ''"o  to 
"^^  received  l,v  ,M     ,'' ^^''^«-' -'-an  a.      ■  "'  '"  "^  ■■■  ^«"" 

<■)   work,.,,,,  „jj^^^_| 

'^'  The  n,an„fac,„'°'^'"'"™'>'on,   firework,    ,    , 

""'"", pain,. ;;: ;''^7"i'- '"c<^<iin^ ',,:■, 2  """°^'"-'- 

■i<.i„.,^„..„     ,„  ■  ™'°"  »"-'  varnish.        "    "'■  '"'"'""U.  so;Lp, 


II 

1 

1  ' 

1 1 

f 

j 

220  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

(3)  The  manufacture  of  metals  and  the  manufacture  or  repair 

(4,  Thrmanufature  of  rubber  and  .oods  made  therefrom. 
5>  The  manufacture  of  leather  and  leather  goods 
'(6)  The  manufacture  of  bricks,  cement  and  art.fie.al  stone  and 

other  artificial  building  materials. 
(7)  Sawmilling,  including  machine  wood  work,  and  the  manu 

facture  of  wooden  cases." 

The  contributions  and  rates  of  benefit  under  this  act  are  the 
same  as  under  the  principal  act.  The  act  is  compulsory  on  etu- 
ployers  and  employes  in  the  trades  menttoned,  but  e.«ept  on 
to  the  compulsory  feature  may  be  made  by  the  Board  of  Trade 
in  the  case  of  those  workers  who  can  show  that  they  were 
employed  in  munitions  work  prior  to  .Xugust  +,  19U,  or  tha 
they  were  under  the  age  of  IS  when  they  first  became  employed 

'"The  let  rame  into  force  on  September  4,  1916.     It  was  to 
remain  in  operation  for  five  years  from  that  date  or  unt.l  three 
years  after  the  end  of  the  war  (whichever  of  those  dates  may  be 
ihe  later),  but  the  right  to  receive  benefits  continues   for  s.x 
months  after  that  date.    Just  prior  to  the  comtng  into  effect 
of  the  act,  the  Board  of  Trade  issued  an  exclusive  order  exclud- 
ing from  the  operation  of  the  act  practically  all  classes  o   muni- 
tions workers  other  than  those  which  might  be  mcluded  in  the 
narrow  sense  of  that  term,  "  the  manufacture  or  repair  of  arms, 
ammunition,  ships,  vessels,  vehicles  and  air  craft-intended  or 
adapted  for  use  in  war,"  and  of  the  metals,  machines,  tools  or 
materials  required   for  the  construction  of  the  above.      The 
result  has  been  that  fewer  workers  have  been  added  to  the 
number  insured  under  the  principal  act  than  might  naturally  be 
supposed     The  number  of  claims  for  benefits  made  in  July, 
1917,  under  this  act  were  3,806  as  compared  to  7,501  made  under 

the  principal  act." 

The  extension  of  the  Unemployment  Insurance  Act  to  muni- 
tions workers  was  not,  of  course,  due  to  the  present  existence  of  a 

•  6  and  7  Geo.  5,  c.  20.    Public  General  Acts,  1916,  pp.  43-45. 
2  Ubour  Caielle.  1916,  p.  349. 

•  /Wd.,  1917,  p.  289. 


^"ch  a  transfer         m  ""^  '"^"^^'l  Tades  ,7,""^''""^"  "Ho  ,he 

^-  benefit  :r;i"°;  ^^"-  •"- '°  u  S"''-"'  •^- 

unemployed     r„  1  insurance  Act    JT  ,  ' '^^'"" 

w'thin    ts  ,.„   ^      "  '■'"'■^•«<l  a   further  "^'  ^"^"■■ance 


Disabled  Soldiers' 


the  outbreak  of  the   'r     t^'""'^  »"«rn  in  Great  Bri,         ''" 

transferred  ^  ,he'^„"'".*P^«'"™t^  alon.  the  ^'*'^''  '"'^ 
Pensions  haf  .Le^TonTf  "'^  ^"^  -"'o  th:"^.  ""'  «- 
and  surgical  tre!,!,       ^  '°"  ''""■     fl)   Pr  "'^,^^'"'''^y  of 

^-iona,  aLtt-aT.ratr-'"^-^'  ^-iT;.;^:*'' 
'"-"  '-^-eoccupatio   .      Hnd'"  "'  P"^-^    f  m  ,wT 

■'•  '-'ccember.  Jp]/ 


228  BRITISH    LABOR    CONDITIONS    AND    LEGISLATION 

the  man  is  in  condition  to  accept  it;  (4  furnishing  maintenance 
for  the  man  and  his  family  while  he  is  receiving  his  training  or 
is  becoming  adjusted  to  his  employment. 

When  the  man  is  discharged  from  the  army  or  navy,  his  name 
and  address  are  sent  to  the  employment  office  of  the  district  into 
which  the  man  has  gone.  The  office  writes  to  the  man  inviting 
him  to  register  with  it  in  case  he  wishes  its  assistance  in  finding 
employment.  Between  May,  1915,  and  July  13,  1917,  127,300 
disabled  soldiers  and  sailors  had  registered  at  the  employment 
offices  and  59,400  of  them  had  secured  employment.  The  remain- 
der, with  few  exceptions,  were  men  who  had  canceled  their 
registrations  either  because  they  had  found  employment  by  their 
own  efforts  or  had  discovered  that  their  disability  was  such  that 
they  would  be  unable  to  accept  normal  employment. 

The  Ministry  studies  carefully  the  labor  market  to  see  that 
not  too  many  men  are  reeducated  for  any  particular  trade  so 
that  they  could  not  all  be  profitably  employed.,  Local  committees 
are  appointed  to  secure  the  cooperation  of  employers,  associations 
and  trade  unions  in  determining  the  occupations  in  their  respec- 
tive districts  in  which  men  are  to  be  employed,  the  kind  of  train- 
ing needed,  local  provisions  for  obtaining  this  training  or,  if  there 
are  no  local  facilities,  the  technical  institutes  or  factories  through- 
out the  country  where  it  may  be  secured,  the  wages  to  be  paid, 
etc.    There  are  also  special  investigators  who  have  been  appointed 
to  inquire  into  possible  openings  in  the  various  trades  of  the 
country  and  the  kind  of  training  needed.    Elaborate  schedules  of 
questions  have  been  drawn  up  for  the  purpose  of  securing  detailed 
information  with  regard  to  certain  industrial  processes  and  these 
have  been  sent  to  technical  schools,  factory  inspectors,  trade 
union  officialr.  employers,  etc.,  to  secure  the  necessary  informa- 
tion.   From  the  information  secured  from  all  these  sources  spe- 
cial pamphlets  are  issued  for  various  trades  telling  of  the  oppor- 
tunity for  using  disabled  men  therein,  the  previous  experience 
needed,  what  disabilities  would  and  what  ones  would  not  debar 
a  man  from  the  trade  in  question,  etc. 

It  is  said  that  an  employer  usually  undertakes  to  find  work 
in  his  establishment  for  his  former  employes  if  their  disabiUty  is 


IJ  J 


""^'00  great     m"*"'"'  '""  "' "^-'^'  "c 

^j  '°ng  as  .here  , "no  ,  "  -"'^"^  ■"  '"''"sTry  2ff- '"  ''^"^  '° 
»''"'=''  trade  union  T  ™*"  '°  "^^feat  the  l!  ""«  ^"'l  "<> 
"■""nerat/ve  work"  '''^'^P°"'We  way  to  secle  e^,    ""^  '° 

•  "•"■ton  of  La,,„ 


r 


CHAPTER  IX 
Industrial  Unrest 

We  have  already  noticed-  ^^l^'f;^^ZttLT^l^^^^- 
,rikes  which  .ooU  place  «^^.    ^^^^^^  the 

after  the  suspension  of  the  industrial  iru 
early  months  of  the  w"-  conditions,  the  growth 

Viewed  from  the  standpoint  of  P"*^"^  ^  ;      „„„ths, 

in  the  number  of  ^^'^^^  toS^3«,««6  worU 
was  not  serious.     Only   300  d  spm  ^^^^ 

people  and  causing  an  aggrega«  '-  °  ;^;„^,,  „,  ,,,,,  as 
were  officially  r.oorted  for  the  fi  st  s  ^^^^^  ^^^ 

compared  with  ■  .-.disputes.  ^^        '.^  .,,  corresponding 

=:f'^u:;n;^^:^«>^----S'^- 
Sxrtiflfm:^:----  — °^ 

actual  war '  ;^^^^  j,  ^ot.  however   to 

The  seriousness  of  strikes  in  w  ^^  ^^ 

be  measured  by  their  magnitude  but  by^  he  «ten        ^^^^^  ^^^ 

interfere  with  the  conduct  °«'*'',  ";;^,  J;„rn,  for  the  great- 
strikes  of  1915  gave  the  B-""™^' ^  f'^^X,  of  work  people 
est  loss  in  working  days  and  the  largest  ^^^  ^^^^^_ 

involved  were  in  the  ««'"'• '"^'^  "steady  P™-ution  of  the 

port  trades,  those  upon  which  the  steaay  v 

war  was  most  dependent.  gj^   „^^\,^ 

The  enactment  of  the  M»">"°"V^^';;,,i7ent  in  regard  to 

the  adoption  of  a  new  policy  of  ''^.^r^.jHes-and.  under 

the  settlement  of  disputes  in  '^e  — n    ndust  ^^ 

certain  conditions,  in  other  >"'!"  ^^^„ '"j„<iged  by  immediate 
the  principle  of  compulsory  arbitration.    J     g 

lOiapterlll.  pp.  62-64.         261,355. 
'Labour  Gazelle.  H"3.  I'V'  jj^ 


'"DUSTRIAL    L-NREST 

results,  this  pan  of  ,1,  231 

I-  'He  firstlt;:."/  :  rCf^.;  -.-  be  con.„e..,  .  ,,J 

The  South  r  '""  ''""  '"'■  '™'" 
•conditions"    A   fi?'*'  "^"^^  ^'"''^  "as  not  entirpiv  ,1 

f'"-  '^-e.^i^L^nhei^rr'  '--™'"soi  •:..::: 

.      I  and  a  month  earlier  th    ZlrsTT.''"'  ^'^P'^"  -  ^P 
a  new  agreement/     a.  th.  T         "''  ^"'^"""ed  proposal,   7  . 
G-at  Britain  had  de    .■   ^niT^  '"^  "'""^  ^^^^L^Z 
«nt  "n  wages  in  all  mine,  "   p„    °^^"  ""^nce  of  twenty  per 
-"eet  the  increase  in  the  cos   ofl^  "'''  ^'°"=""'  and  \\'ale,^o 
".'east  partiallv.  met  asTr    „ Trf    7'''  "--"  had  he  ° 
M'n.«er  (Mr.  Asquith)   in  Tl  "\"'"'''''""  hy  the  Prime 
an  advance  of  wages,  vary  ngt  the  d'^^''^  ''"'^  "as  allowed 
amounts  to  be  determined  by   ;V  1  1      "l''"'^'"^'  "-  exact 
the  South  Wales  miners,  this  ad™l        eonchation  l»ar,ls.    To 


i'^ 


m 


Nj 


,,,  BMT.SH    X-ABOK   CONO.T>OKS   ANO   L.EO.SL..T.OS 

ana  operators  >^»<'^>'«"  "^^f   ^    ; lion  on  coal  production^ 
concerned  as  to  the  effect  °f  ''^",^^^,     ^„u  had  quit  «ork 
Some  of  the  miners  engaged   '"  ^''^  "  ^    f^.,„,,  «,  agree  on 
as  early  as  June  IS  and  '^e  '.-Pf  j'  *    ,^;„,,  ,„,  end  of 
the  nonunionist  ,ssue  'f"''\";':";;;,' negotiations  with  the 
June.'    Government  °*-f  '°t;^  J  ,„Wen  of?  an.l  proposed 
i,iners  and  the  "P-^-^'"-"    ;■;,  ^^aT  .-.kI-     These  proposals 
a  series  of  comprom.ses  i"'  '^'      J^^  ^„,i  t,,e  miners  agreed 
were  accepted  as  a  has.s  o    "Jg"''^";        ,„  .,    ,  contract  whdc 
to  continue  wo.k  for  a  fot^mght  on  a  day  >  ^   ^^^^^  ^^  ^,,^ 

negotiations  were  P^"-!  ">? .  ^,^^7  and  it  w^s  ,n.lerstood  that 
government's  proposals  ^^^^  ™';'^^^;,^  ^,  ^,,,,,,  «as  to  issue  an 
llr.  Runciman,  P-^'<'"'; ,  '^^.^iTi"  erpretation  was  issued  on 
interpretatioh  o,  f '"'■*;  .J'^;  tHe  miners,  who,  on  th-- 
lulv  a,  it  proved  unsatisfactory    to  ;  jniormed 

'•'-''^•-''^^::^Cw:^t^-tv^i-  ..n  of  a 

the  government  that  they  wo  r  demands 

complete  acceptance  of  '>^- ?-   ^.^  .^^^r strike  on  July  t*. 

were  granted,  they  were  <l«^™'";^j,      f,;  ,,Hkers.    This  much 

Public  opinion  ^^-^  g'""f' >^f^XJ  Year  Book:  who  claim 
is  admitted  l.y  the  authors  of  the  Ubour^  ^^^  ^^^^  .^^^^^ 

that  the  pubhc  was  not  "f ''^  '"/"^^d"  ^„  ,pp,y  to  the  con- 
involved.     The  g-ernment  now  'lecded      JPJ^^  ^^^^  ^^^^_ 

„oversy  the  arbitration  P™;;f  "^^^^^  ^  coal  mining  is  not 
which  had  just  "«"  =""'P't-,he  Sons  Acts  are  generally 
among  the  i"<l"^'-\  °;f„Vthe  riginal  act  the  government 
applicable,  under  section  .)  o    the       t  ^titration  pro- 

is  empowered  by  P™^>='";!'"°':;  "  si„g  o„  work  other  than 
,isionsoftheact_to"ad.flerer,ce^^^^^^^  ^^    ,,, 

munitions   work      n     .,..,    „„:„<iicial  to  the  manufacture, 

.,*.,.— .IE-,™-.'-""""-'"" 

=  S.e  p.  79. 


-t"«=£r^"" -».>....,-: 

of  makini.  jt  an  nff  "*""'  '^hich  ,v'ui,r   /     ''  ""''  '^at 

«°-<f  of  Tra,lc  h      ""  '^f"«""°  "-"  B,  1  ,f  T-,''"'"'"'  ""'"^ 
for  se„,e.:?  ^'^  ""'  -"""  ^"  -iay.  o/         :^-'^ -''  -h. 

.^'■^■P-c,,..ma„oni„e,f,va    ■  "  """" -f--"  i^ 

had  no  effert  ,„  *™'*  'ssued  th.-  f„n      • 

--  'ha/.,r'^  ™  -'"  -.  .n..,dtn  ?".?""  '"^' 
inference  heW  at  ,he  r  '''"'"  ''^''  «  .hdraL  7  ''°'""- 
"^"'ered  in,„  n.J,  a  ■        '''""'^>-  ■"   March        7       ?"'    ""•■ 

he  ".a,le  under  ,  ""  "  ""■"■'-■^  worl  no  ,  jf ""-'  "- 
ffovern^^ent  M  L,  "°"  ^^"h  respect  ,o  ,„  h  ff  '""'™  -^ha" 
'■"'^""0"  to  at  t         ,'""'  ""^  ™'ners'  annn  '""■"    ^ho 

'.-^ere..,-:L    '    C?h  "'^^""■^■^  -an?"  r^r'!'"'  "-■> 
justice  „f  their  H  """"■'  felt  that  a  ^  ""  ^«  "" 

strike.  '""^  ^'="'"-'  -ouW  have  avoi^L?  ,"''"'"""  "'  "-e 

.The  eovernn,ent  had  n  ,  """"'^  "'  " 

•^'h"nal    to   dea.    .v,'h   ,n   '^^^  "P  «  South   U'ale, 


:!    li 


ili: 


,^,„.  <:    AND    LEGISLATION 
231  BH.TXS..    LABOR   COKD.T-.      s   A  ^^  ^^^ 

.ouUl  be  no  s.iWe.  for  the  M.ne.  K  er-on  h.U  ^^^^  ^^^^^ 
Uoyd  George  and  Mr  ■^"\"'  i;7,i„g  the  war.'  The  men, 
„o.W  1«  no  strike  m  the  coa  fid  d  8^^^  ,^^^,^^^,,^  „  u,e 
however,  had  largely  dr-fted  away  ^^^^.^^^   ^^,   ^j,„ed 

eKecuive   committee   of    the   tede 

against  the  strike.'  established  a  general  muni- 

^The  Minister  of  Munition    ""';';  '"^j,^^;^,  but  the  govern- 
,1'  ,il,unal  for  Wales  .,d    lonm  utVish 
„ent  decided  that  it  was  no'  ,.^         ^^.^^  ^^^  g^,^„  ,vale 
,,HWers.     Negotiations  w  re  re.  ^^^^       ^^^___^,^      ,„i 

Miners   Federation  and  ^l;-;^-  ^  /j^  ,nd  held  a  conference 
Henderson  went  t,.  Cardiff  on  J  n^  ^^,^^  „„,,  „(  the 

lith  the  officials  ,.f  the  union,      t  ^^^    S  .^^^^^^.^^  ^  ,„„. 

demands  made  by  the  men  *-'^  'f^^^,,  ,g,eed  that  no  action 
siderable  a.lvance  in  wages,    ft  was  1  ^^^.^^^^  ^„j  ,hat 

houU'  be  .aken  by  the  E-""-'  „  f ^.d  increase  the  output 
every  effort  woul.l  be  made  '<'  ^'^  „  „,„„,d  work  on  July 
of  coal.  With  these  concessions  h.  me"  _^  ^^  ^^^  ^,y„,„„n 
20.  The  first  attempt  to  «""''''';  ;f„„„„unitions  work  had 
provisions  of  the  f  "'.'-"^^.f  ^^.J,"  ed  which  had  cost,  it  was 

by  1,000,000  tons.' 


Strikes  During  the  War 


Mother  strikeinvolvin.---.--^X^^f 
South  Wales  coal  fi''''-"  ^"^^  ',' eement  of  July  30  by  Mr. 

r,r:f  "  "  ~  ;?:"  rd  for^hese  momhs  .as  not 
half  of  l.ii.'-  pp.  74.75. 

iH    L.  Gray:  Wartime  ConirM  oj 

'  Ibid.,  V-  '5. 


P^-'l  imn^eOia,  ,  "    :rr  ''^"-  "-an  ,ha,  of ::'''';''  '"."-' 


«'  forth  in  ,hVf"  ,     '™^  ''"'•"'  -'own  ,„  1  mi    n'  ""•     ^'"^ 
"'  '°"owmg  table :  ■'  ^  ""''<"<•■  of  l'.U8  is 


V«r„f  ,9,7  ■■■■ 581  |--''f!  .U^M 

Several  of  the  r  2'0»o,80o 

P"^Pose  of  this  "tril    "  °'  ""^  ^lyde  VVorke  s'  r         ■  ""'''■""^- 
Po'icies  of  ,(,.  *^^'  'o  change  th.  1  r     '^°™'"'«ee.    The 

^"PP'ies.     This       -^^  ^'"""y  Service  aT,  "1  'f'  """'"""s 
""ween  the  leal'   ,  T'  '"  ^'"^"ce  of    he'  ''"'"'"^  "P  «- 

^-Societ.-^--...^^ 


,.ey  had  not  been  con.uU.Uvhen  J-^-^t,,  ,,.c.a«y 
n.o  and  that  they  were  not  bound  .y  "  ,,i,u,ion    and 

rria  wuh  '^''^^-xrweriu.He.^o^w 

demanded  that  shop  ste'    .rd   •«  a„anKe,nents  for  the 

,0  go  into  other  de,..amen  .  ""'?,,  ,„  ^his  interruption, 
d-lu'tion  of  iai«r.    ^he  en^V^'^     J '  ^^  ciyde  commissioners 
b„t  «ere  wilUnR  to  ^^'l^'V^ntat  ves  facilities  to  ascertain  wha 
and  to  give  the  men's  "P/"'"''',V"  „hemc.'    The  government 
ras  iJng  done  under  '^-^^  .^f  ^HWe.     Under  powers 
acted  promptly  m  the  matt  r  ot  ^^^^    .^  proceeded  to 

conferred  by  the  Defense  o'h    Re      ^^^  ^_^_^^,^^^  „(    he 

arrest  nine  leaders  and  eo"veye'l  t  „,  „un,t.ons  m 

W  ngdom  on  a  charge  of  'l^'^y"  «  f^/^"   ^  ,he  strike  was  at  an 

^^e  were  few  strikes  inmuni;^^^ 
der  of  vno.    m  June  >t  was  <"""''"'  Jj,,,  „{  ,he  Liverpool 

ives  ,n  the  Lancashire  eo"on  -^^  ^^^^  ,,^  .^^  ,„i«.    On 

There  were  few  stoppages  m  the  »  ___^^,^^,  „,  ,he 

DeLmber  1,  '«1«^''''^  ^HeTc"  Hds  and  on  March  1  l«n^ 
coal  mines  in  the  f -">;  ^^ine  in  the  United  Kingdom,  Thts  d^ 
it  assumed  control  of  all  mmes  in  tn  j^^^^^^^^.  ,„deed 

2,fioo  colliery  exammers,  wr  • 


-Gray,  of,fi'-.W 


4849. 


./bid..PP.26"» 

•  ;Wi.,  PP>.2'*:f7'ioi7   p.  283, 


vil,  1.  PP 


266-267. 


idle    Th.       ,  '""""""^i.  vs»t„ 

°"°»*».,.„  p'°"""'"  """■'» 

l^en  such  as  he  h  "'"•    '^''^  ^"Po-se  tn^hi      '^   ^'  P'="="'« 

clearly  show    1         T'°"  '"  '"'Pe  for  I  1'   «  ■'''''"'  '■^■'  "ot 

°   pay  /or  such  work   h, f  """  ^^'"'"^^  due  ,o   h"         "'  ""^ 
°f  'he  frequent  «  '  ""''"heless,  been  ,h„       ,■    ^^ '''"" 

workers  cau  ed  bv  r?^"-     """'  ^•^--     on  te' '""'"«  ^-"« 

^LcbourCuelu,  1917,5.455, 


238  BKlTlSll    LABUK   CONUITIONS    AND   LEGISLATION 

In  the  cngincer.nK  an.l  shipl.uiUli.ig  tra.ks,  comphims  over 
pay  leaving  certificates,  dilution,  failure  on  the  part  of  employers 
to  keep  the  recor-ls  of  changes  in  working  rules,  etc.,  I.a^e  l«en 
ahnost  continuous  an.l  have  at  times  leJ  to  .lisputes  of  serious 
prowrtions.  Open  defiance  of  the  government,  showing  itself  m 
the  form  of  called  strikes,  has  perhaps  l«en  infrequent,  hut 
voluntary  cessation  of  work  an.l  other  methods  ..f  showing 
dissatisfaction  by  curtailing  pro.luction  have  ton  r-sorted  to. 

In  .May    1!)1T.  the  dissatisfaction  in  the  enj.,.  ccring  tra.les 
came    to   a   hea.l.      Employers    wer-    suhstitming    piece    work 
scholules  for  time  schedules  an.l  .■■.•  .•'■«  rales  of  remuneration 
pruveil  unsatisfactory.     New  machinery  was  l^mg  intro-luce.l 
an.1  laU.rers  were  l«ginning  to  suspect  that  it  would  be  ii.iims- 
sible  ever  to  carry  out  the  pledge:    which  ha.l  been  made  by 
employers  un''.-T  Schedule  2  of  the  Muniti..ns  .\cts  to  restore 
the  prewar  •  ,,,i.liti.,ns.     Two  new  subjects  of  complaint  arose 
,l>out  this  ..ime;  (1)  The  government  found  it  necessary  t,,  with- 
<!..,.     .,e  exemption  car.l  agreement  which  it  had  ma.le  with  the 
A,..,gamated  S.>ciety  of   Engineers,"  and  which  perm.tte.l  all 
skilled  men  ,.f  that  organization  engage.l  on  war  «ork  or  en- 
rolled as  war  munitions  volunteers,  who  bel.l  exemim-.n  cards 
issued  by  the  society,  to  escape  military  service.     This  with- 
drawal create.l  great  dissatisfaction,  although,  .nitside  the  engi- 
neering trades,  this  singling  out  of  the  .Kmal.-amated  Society 
for   special    privileges    had    produce,l    .lissatistaction    in   oUter 
unions      (2)  The  Munitions  of  War  (Amemlment)  Rill  which 
ha.l  been  introduced  into  the  House  of  Commons  authorued  the 
dilution  of  labor  on  private  work.    The  government  ha.l  prom- 
ised in  I'JIS,  when  the  Munitions  of  War  Bill  was  being  pre- 
pared   that  it  would  not  extend  dilution  to  private  work.     The 
nee.1  of  men  for  military  service  was  now  so  great  that  it  asked 
,0  be  relieved  of  its  promise.     Many  unions  gave  their  consent, 
but  the  .Amalgamated  Society  of  Engineers  --f^^J^  »^ 
When  the  bill  was  brought  up  in  the  House  °f  C"""™"  •  ™ 
engineers  began  to  remain  away  from  work  and  a  silent  strike 

•  See  an...  p.  — •  »lso  BntM  lndu,lri^l  Experience,  vol.  1.  pp.  3Z4-325. 


INUl-STRIAL    INHKST  .j.^f, 

..-".'.:,;::,:":„■;;  ;:r:'x„::  :z""  ■ -  •■'■ 

'hi  Th.  „r„i,i,, „  „,  ,h;,irh' .':;''' ""'","  """""-I- 

"'  ---^'li^xr 7,--;  — ir'^'" '  -". 


These  proposals  were  not,  however,  accent.l,!..  ,„  ,h  .  , 
Kaniateil  Society  of  F.ncineers  an,l  ',/""'"■"",  "'  ""^  ■\'"'-'>- 
■'ilntion  on  private  work      (    n  7  "','"'''   "'^'  "^''^  '" 

Churchill   lH.xan,e   M     .t    *  ""7'l'-"">'  -''™   Mr.    Win.ton 

Thirty  tHo.,.n„j,„ewor.::.^r.i:e:-r::r;::r 

a  1;.  per  cent  advance  of  wages  from  March    a  ,     r        o 
m«;     Threats  of  a  .rikc  on  L  rai,:::^''  r^;^;  '111;;' 

Kiia  ,t,  ;  •,  •^"'- ,  '  ^'  '■"'•  For  the  first  fonr  months  of 
I..1S  the  strikes  have  been  numerous,  bu,  can  not  be  sai.l  to  have 
been  very  ser.ous  or  of  long  duration.  They  show,  however  a 
d.spos,t,o,,  on  the  part  of  the  men  to  take  advantaR  of  1  war 
needs  to  demand  changes  favorable  to  lal.r,  and  the  ne  ,s  o 
::S  mad?'  '''  '"'~'  -'  -^  "■-  concessio;?a;: 

'Gray,  „n,  f,7,.  pp    51-52. 

.  'i'-"":  p'-""-.  1917.  p.  283. 

•fln/irA  Indmlrial  Exfmenct,  vol.  I,  pp   269-2;0 


240  BRITISH   LABOR   CONDITIONS   AND   LEGISLATION 

The  rising  tide  of  industrial  discontent  among  the  laboring 
da^:,  ^:::^dLed  .y  the  stride  statisU.^icH  v.^^^- 
did  not  fail  to  impress  the  government  °*^f  ^P°i„,,,iig,nt 
the  conduct  of  the  war.  Desirmg  to  P™«"\';^^^^^^"  '„  j^e, 
manner  to  quell  this  discontent  the  ^oj^^^^^^tl.  cLses 
aOlT.  to  appoint  — s-ns  j;  ;«  Xo- to  the  govern- 
of  industrial  unrest  and  to  maKe  reconu 

„ent  in  regard  thereto,  .^f  °.- P-"f l^^.^^.t  y   he  work  of 
of  these  commissions,  U  ,s  ^esiraWe  to  repoj'  br^    y 
an  unofficial  inquiry  into  the  same  subject  wnicn 
been  made. 

British  Association  R.port  on  Industrial  Unrest 
The  section  of  economic  -nee  and  sta.sti.  o^^ 
Association  for  the  Advancement  oSc-e^e-hJ^^  ^^^ 

in  the  war  had  ^"r^^^Xr^  Z:Ze  investigating  the 
financial  phases  of  the  v\ar  »»"  "  ,    ;„  1916. 

causes  of  industrial  unres.  wh.ch  -de  ^^^  ^^  ^,  l^,,^.„,, 

This  committee  was  made  up  of  ^'P'"'  g^^n  president 
trade  unionists  (among  whom  ^^s  "^  "JJ^^^^^J  ^^,3  charles 

of  the  Trades  Un.on  Congress),  ;';~\'' s^^^,^   chapman 

Booth,  Archdeacon  Cunn-gham^  ^rof e- 

ami  E.  C.  K.  Conner,  and  other  scen^^a  y  ^^„,,„sions 

personnel  of  the  -"-'"-/^-^^J"*  e  .    embtn «  between  its 

£:ff^^:::^^X^---"---^ 

3.  Th,  uncrtainty  of  regular  employment. 

4.  Monotony  in  tmploymeut.  „onomic  conditions. 

5.  Suspicion  and  »ant  of  ''""''f  ^^  ^    74„,„  and  satisfactory  labor. 
6  The  desire  of  some  employers  for  more 

y  The  effects  of  war  measures.' 

'KirUaldy  (Editor)  :Z..»r,r,-,..««»^.*^>*--  >'•<>■  -^'■^^' 


INDISTRIAL    L-.VREST  04J 

miidle  of  10  r    Num  e,;  '^  l"'"."  f  ™"""^'"'  "'  "'^ 
to  the  war.  '  ""  ""  °"'*''  "^^"'l'  "'^'^s  solely 

JS^i:yr  r -x.:::^™' -^-- ''- -4 

s.on  of  .he  democratic  movement  from'pol   ."l     „^  tdusTrU; 

-a^einent,  d.^  ::::^::xiz  ^^iz^^'z "'  f 

themselves  do  not  seem  to  have  realized  the tr.iJnfi""^'^ 

"e^u'l';  on     f-'  '  """  °'  •'"'^"'™  ^^^'-'  speeding   71 
reduction  of  piece  rates.  ' 

t„?^  ''"T^;"'  '°J  '  ^^-^"P-iti™  of  trade  unions  is  partly  due 
to  a  knowledge  that  "the  more  perfect  their  organizat  1     he 
more  eas,ly  will  they  be  able  to  increase  the  mfter  a    rnefit 
which  they  can  obtain  for  their  members,"  but  it  is  "so  E« 
'  Kirkald.v,  of.  dl..  p.  24. 


242 


2«  BR-  ,  'SH    LABOR   CONDITIONS   AND   LEGISLATION 

,,e  "wor.  people  believe  that  tV.  powe.  -  —  t^; -- 
Uves  and  the  conditions  under  wh.ch  thej  work         , 

'"'""V^"  .°t  r:  Te t,p:rtrways  and  in  many 
organization.         In  these  mo  ^vi.rknien  showmR 

minor  ways,  according  to  'h-"-™"";,       ^.^  .^e  discipline 
a  tendency  to  ^'^ ..X^re     -a  i  M  with  the  status  of  the 

r:r:;;dcai;^^:;sti..ea^i^-;;jp- 
--'whS^^-:hi"-^^^^^^^ 

..employment  ^^:^^l^^::tT^:  ..^ou.y  of  worU- 
are  >"^"ffi<^"^"' '""^  ,7  "'''  ^.^eme  The  committee  urges  an 
men  are  ""f  «"'='' ,''>'^;/i„ee,  continue.1  efforts  to  de- 

"""f^l^:^.f^^^b^h^::nt  of  the  custom  of  giving 
-:^;:r;ts:whomh^.h.en.d.^^ 

4.    Monotony  of  employment  «'" .'?'"""™ ;    j^^j       but  says 

haps  inevitable  under  -»'- ^^t^n  ^  ^  „  r™-  ^^^'- 
that  it  constitutes  "  a  consulerable  st  am  on 

and  predisposes  the  -^•^-.^'^J/^tHllX  a  monotonous 
that  monotonous  work  need  not  necessaray  ^^^^ 

life.  Modern  town  hfe  offers  "Pf^'"  '"^  ^^  f„  educa- 
recreation.  What  the  w"^''"^  "«'' ^^  J^bu"  recreation, 
tion,  leisure  and  the  material  "'^''"^  "^°;' j;y\righter  and 
inside  the  factory  the  -"— ^^.i^^n  of'rest'periods.' 
healthier  buildings  and  by  a  b  Iter  d^st  ^^^  ^^.^^ 

I  Kirkildy,  of.cil.,  p.  26. 
>  Ibid..  I>P  26-27. 
•  /Wd.,  pp.  28-29. 


Ill 


INDUSTRIAL    UNREST 

ing  market  conditions,  profits  an,l  fl,» 

position  of  the  indust;y  whi   >  m,Vh,     '°7'"!™''  ""''  «"='"^'al 

the  employers'  point  o[  view  "'""  '"  """erstand 

dustr,al  unrest.     Entployers  point  to      e    "L"'  ^;'"-'""'"^  '"- 
to  work  regt-larly  an.l  show  how  thi     re  Ir   ,  '"""'  "'™ 

claim  that  laborers  are  becoming  1.         r     ,      '  '""''"'■     They 

'"=«  'he  ".east  skilled  a.:rs: :!  j^/n :  I  ■•"";  '^^^'^-"•' 

■n  question  is  apt  to  set  the  stan<Kr,l  f  '     •"'  ""  ""^  ""^'^ 

-•fee  believes  tha,  these  ^    1 1     ':,  n,;'  m"    """^  ^'""■ 
remed,e<l  ,  .  ,he  employers  recularbinJ  ''■"'  '''■"■''''">• 

possible,  .iscouraginf,  overt^^  an  *"  ""';'">"'""  ••'^  '"•■'■•h  as 
are  hnman  an.l  should  CtZJ^  ^-^-".^"i  -^rniR  ,ha,  laborers 

thecc™mi..eepreaches';::;t':^;r:::jHt:^"'"^"— 

tive  of  in^SreTaTe  the'r:  r""''-  ^""^  "'  '^  P™'- 
'■•ons  Acts  and  the  h  gh  'e,  an  7 '"'' T""""  '''  '"^  ^'""'- 
produce  physical  strain'and'rrita'iol"'  '"""  "'  ^^-^^  "'"'^'^ 

the  Prime  Minister  mlutn  ""■"""""  ••"■'P"'"'^'' ''X 
Possibly  the  presence'o  P^Ltnr  '"^  ^"''"ey  report' 
committees  is  responsible  for  "his     -h'      '"'"""'  °"  '"'"^ 

w."  he  dealt  With  in  the  chapt^roni^d^;:;:;:::-^^^^^^^^ 

Investigation  by  Govervupv,.  r-„ 

vjovER.SMEM-  Commissions 

^^^^ZZ''Z!T"'  ^'"'°'"-'  ""  J™  ^^.  "n.  by 
unrest  and  to  mile  re  om^      f  '"'°  =""''  ^^""^  "P™  '"""^'nal 

'«< 'p^f  "■'■•»  2«-J2- 
■/6i</.,  pp.  44.S0. 


,«  B.mSHLABOKCO.omO.S.NOU.C.S..T.ON 

(  rr,.-,t  Britain.    There  were  three 
,iistinct  geogravhi.  al  sect.on  of  Great  Br^a         ^^^^^  ^^^^^^ . 
n,e,nbersofeacl>'omn,>s..on     They     art        ^^^.^  ^^^^^^ 

rr,ediately  and  worked  «"*>;"^^/P;',„,  ;„  ,he  hands  of  the 
been  received  nnd  -f-nce  cop..  P^aced^^^^  ^^  ^^^    .^^^ 

Prime  Minister  by  ify/^V'  ,„,  thorough  than  would  be 
sumed  may  have  made  ^^^  "^^^^^JZiZre  is  nothing  to  indi- 

thought  necessary  m  times  of  P"«'  ™^  ^^j  ,-„m  a  more 

Tate  that  di.=ferentcond«.onsw.uMha^e  rest.    ^^^^  ^^  ^^  ^^ 

lengthy  investigat.on.  Each  co  -^^  ^^  ^,^^^^^^  representing 
meetings  and  eKammed  f™;  «^;;,„,,„  concerned,  and  con- 
employers,  trade  umons  »".J;"^"Jf^,i  ^    i„,erested  parties. 

siJered  ^'='--;\;V:lr  o«s  C  t"  was'made  by  Mr.  Barnes 
A  summary  of  the  various  rep  ^,^^  prmcipal 

of  the  War  Cabinet,  which  -    ^  ^  ™^,'=„eral  divisions  of  the 
conclusions  and  "commendatmns  •     th'  ^^^  .^j^,^^;,! 

r::r;e:^Sr:::^-o;lheseLal  divisions  are  set 

Th;.    ..  ..c«   in   ...on   ,o  W...   ......   .—- 

"f  Uck  o     o„M.nce  in  *e  government    Th.s  due  ^^^.^  ^^^,„ 

t\eenpn..«h.wUh.^^^^^^^^^^^^ 
5    Operation  oi  the  mhii*'j 

^  llS^o^'r «.ani«Uo„  --;^,-Xe  .n  Son*  W.e.  »Here 
10   Lack  of  commercial  sense.    J''^/  '.'  "°  ,i,„,„,ary  repriscnut.on. 

„  13s.  ($3.16). 


'.VDL-STRIAL    L-.VfiEs,. 


2.J5 

W 


weelfli  i.  .,        ."'"'"s   Compensation   Act      Tt,. 

"-"kli  ,s  now  inadtqujie.i  ''     ^'"   maximum   of   £1    (15457, 

■"cl«d,ngthe,^a,.erof  eavircer,  fic,t  ,""'"  '"'  ''''■^  ■''^'^' 

a  record  of  the  changes  in  „ork,nl  /"''  '"''  "^'-  '-''"re  .0  keep 
of  the  Miliu^y  SerWce  IZ  IZT'^V"'  "^-•-■•'-" 
yhe  wan.  of  sttfficien.  hous  ng  acco^mT'  "'"^''^  "'  ""^^^'' 
^tncttons  and  indttstrial  fa„W  TtTe  '  '"'  '"'""^  ^'=- 

««a,n  district.,,  but  not  universal  ca,""  "'  '""'"^  ''"''''  '" 
causes,  it  apparently  regards  'r  f'  """''  ''■'^'^  ""'" 
havmg  their  root  in  certain  nsvch  ,"";'='",  '°"'  '"  ^'''"•"■•^■r  or 
chological  condition  revea "  S?">""'  ""'"'■"™'-  This  psy. 
dence   in   ,he  governt^enf     nr  '  "'  ""  '"  ■•'  '"•'ck  "<  "nfi. 

officials.     A,an^  „f  tl"  c     .e'rr  ^"f   '"   '"^  '■"■•'"c   un»n 

'at-s  of  this  psychoiogica":;:;::,:':"" ''-  "'^^^■>-  —•'- 

of  Labor  Statistics  reprin  I^Z^T  "'  ^"^  '"  ■'■  "--" 
for     Wales    and     Monmo  tthsh  re    /  "''  "'"'"'■^^ic-.ers 

describes  the  various  in.iu  rie  Wth  ^T  r"""""'^'-  "^^^^ 
^"'.on  of  the  population,  he  g  1  f^T  "'^  '''•''"- 
b.nattons.  especially  in  the  minL  ""h'^tn^i    corn- 

extent  of  labor  org'ani  j;;  „"  "„7^;::  "f  >••  '"e  character  and 
cusston  of  the  effect  of  the  phys.caf  anl  7'''  '"'"''''"^  '"- 
upon  the  feelings  and  modes  of  h  1  '"f""'""  environment 
shows  how  this  naturally  leads/o  7^  "^  "^'  ir^hahn.nt,  and 
'■•'<e  several  others,  con  ns  Ldf' w  r:,"'  """''  ^"''  -'-'• 
■ndustrial  unrest  as  well  as  those  rhh'  ''"""™"'  ""'^^^  "< 
-The  permanent  causes  it  ;-.;:^:t^:--;-:f^ 
are  ■»  *e  tepHn.  of^,^  S^t^Ci^i  Sf'L  J'^^ijl"  -  ^l^^^J 


246  BRITISH   LABOR   CONDITIONS   AND   LEGISLATION 

th  y  a   VrjLu  with  a.  length  ,n  the  Barnes  sumniar^  and  wiH 

orde        which  the/are  placed  in  the  Barnes  --J' ^J^ 

that  practically  all  of  them  are  -"'-™^ '"^^  *  °  i.^'UtWe 
reports,  although  opinions  vary  somewhat  as  to  the.r 

importance. 

High  Prices  and  Profiteering 
1     There  is  general  agreement  that  the  high  prices  ot  food  the 

Agreement  among  the  commissions  as  to  the  cause  of  the  high 
Agreemeni  auiui.K  reoort  witnesses  as 

prices  was  not  quite  so  general.    M\  of  them  repori 

1  Uduitrial  Unrest,  loc.  cit..  pp.  159-161. 
'  Ibid..  PP  43.  77.  207. 

•  Ifcid.lpp.  16.  77,  97.  206. 

•  Ibid.,  p.  98, 


INDl-STWAI.    UNREST 

opinions  as  to  its  fvis..^-  2'*" 

dividends  being  e"::!;"  i^:;,';^;:,":'; ""  ""-"^  °'  "-^  >-«« 

he  low  cost  of  „,„,3  at  the^  t'o  IfT;-  """"  '^^""^  -  'o 
h«  rott,ng  of  food  a,  -listanTp  It  T;  "'7 '  "P°"  ^'P°"'  of 
he  personal  observation  of  the  w^.l  '  ■""»<'<""  ^nd  upon 

■vng  by  employers  and  t     f  ^  1^%"'  '''"'  °'  '-""°- 
^'ons  express  doubts  as  to  whether  i"'         u    "'  ""^  ~"""'- 

Even  fhnc  'mporlers.i 

'^e  charge  "  ^^l^^f^r^^liX -P'.  -.uestioningly, 
^".on  be  taken  to  reduce  h  toToll  "T  "'^'  '"'""'^^"^ 
Profiteenng  i„  connection  with  the  r  '""  '"  ^'=""P  <"« 
supplies."  «"'"    'he    distribution    of    food 

The  explanations  given  bv  fh. 
'he  increased  cost  of  Ld^  v^ry  gVaX^ln'^r^,  ''""'^'^'^  °' 
things,  speculation,  inflation  of  the  curren    '"^'"^-^  ^"""-^  other 
des  ruct,on  of  ships  by  submarines   actua,.  '"'^'"  "'"' 

and  faulty  systems  of  distribution  "'"'"'''S^  <"  ^"PPhes 

7-Z:: "pS;^  -;-^;.^diverse.  Some  of  the 
saiers  and  retailers,'  Others  sol  -  ?^  P""'"""' ^hole- 
s'abilize  prices  and  make  up  a  yTo!^:'  "'^'  /"^  ^°^^"""-' 
from  the  public  fund.s,'  Other  sulT,  P^ducers  or  traders 
•he  cooperative  societies  and  other  S^  "'  ""  '''''"  "^  °f 
-  better  distribution  of  food  supple  an  ^'"'^  for  effecting 
-;— .ifthisbenotpj::!^-— --.ct^ 

yW,  pp.  16,82. 
'/*"'•,  pp.  103,  192,  208, 


Il 


''(' 


I'W; 


248  BRITISH    LABOB   COSUITIONS   AND   LEGISLATION 

U,wer  paid  industries  in  proportion  ,o  th.  increase  in  the  cost 

"'Slst  elaborate  and  best  considered  plan  is  that  suggested 
by  the  commission  for  Wales  and  Monmouthshire,  which  pro- 

vides :  , 

,    All  „«»  profit,  derivable   from  tht   >.l.  .nd  di.tribufon  of  cora- 
Jdm«  r"orcon,,..p.ion  to  ..  .ppropnat.d  b,  th.  .t... 

•"^  r 'S^.;  i::'^ ^^r  i  o.  ..  pnco  to  b.  CH^^^  -;^- 

d„,.r,  middleman  and  rtta.l.r,  "''^"■"^^^".H'rc^     o.  ch««. 

food  sold  in  this  country.  «  ..  •'""'' ^""V^'^g^'d.d  h.n«forth  ..  or- 

-  Only  one  or  two  of  the  commissions  refer  to  the  difficulties  and 
danger's  of  price  fixing,  but  they  seem  to  be  appreciated  by  the 
commission  for  the  southwest  area,  which  says: 

The  danpr  o.  fixing  price,  for  a  f"-*' ''."ij'^rto'kx  pri^s  unt' 
„,.;„..»'  The  .cncra,  -'V'-^tn'^ih!  «n  ^  do  c'"h' control  .hould 
,he  whole  supply  i.  controlled,    ^hen  th»  can  be  ^^^  i,„„„.diate 

r.iruirbe1L':!dr,T;runert.io'n  for  service,  rendered. 

Operation  of  Munitions  of  War  Acts 
2.    Restrictions  of  personal  freedom,  especially  those  ansmg 
from  the  operation  of  the  Munitions  of  War  Act  ,.s^he«^o  ^^ 

-r;*:^::^tr:;;i:^='--}vr^^^^ 
idt:^erLri-^=^{^^ 

^r=^^^^:t=oflJ:rA:ts,willthere. 
fore  be  considered  at  this  point. 

that  the  restrictions  impo^iU  upon  incir  y^ 

1  Industrial  Unrnt,  loc.  cil.,  p.  192. 
1  Ibid.,  p.  120. 


'NDLSTRML    LNrest 

Munitions  of  War  Acts  »er,  n  '*' 

with  the  laws  increase"  eMhr;''""''  ""'^  "'-atisfacion 
The,r  dissatisfaction  was  'rat:  '^'f'  "'  '''"^  -"'  - 
of  -ts  most  striking  manifestat  I!  /"  government.    One 

"«n  had  come  to  have  for  the  "a , J"'  "^  '''''"'"  "''-''  'he 
accepted  the  principles  undet^'-nLtt  Tr  ""'^'"'«-'  -"-o  "ad 
consented  to  the  incorporation  of  fh't'  """""'"'  ^^'^  »nd  had 
Evidences  of  this  lacVof  tith  „!<'' '"''.'"'"''' '''''^'^''°" 
reports  from  nearly  every  distWc  bm  ,"'''"  "">""  '"  'he 
report  of  the  commissioners  fr^'in^yrrl  t"^'  "'  ''"'^  '"  'he 
lands  area,  which  declares  that  ^"^kshire  and  East  Mid- 

»ffi«r.  of  ,he!r  ^™"''  "  """".te  ««,„„  of    h"ul,"!.   '"   '""''""'. 
d.fficul.i„.      '"  ""'""■  "'  """  Pow„le„  .o  „,i°,ThL"':"  '!"'  ""■•■"-. 
The  r„ult  of  .hi.  '"  ""'^  P'""< 

««u.iv.  Ld  „f^".r'"'"''  ""'"'""  """"».  alike  of  .. 
"■en,,  ha.  led  tothrf  *""""'  '''^"""'en,,    "ho  L„        L'  ""''  '"''°" 

other  skilled  workers'  unions  -       "^  ^°''">'  <"  Engineers  and 

Muni^iorr  ir"'^'"''  "''■■«  ^-^  •"«  opcr«i„„  of  the 
(a)  leaving  certificates; 
("•)  the  dilution  of  labor- 

s^J^'n<ir;:Tf^: "' '-"- « -ided  „„d„  Arti.. ; .. 

<^)  dela.v  in  „c„r,„„  s,:r^„ Tn":  ,*'  "'"™^™'  '"'"-■': 


•/jrf«j/r,o/  fnr«, 


A,  pp.  77-78, 


o.n  BK.T.S..    LABOR  CONDITIONS   AND  LEGISLATION 

250  BKiTisii  concerning 

^,)  Most  oi  the  commissions  ^»''' "  Ic  he-  c  nificates  more 
.holier  o(  leaving  certificates  for. h^che^  ^^^^  ^^^^    .^^  ^^ 

than  anything  else  "l"'"^^  f^  ^^,„.;,  ,hi,e  the  commissioners 
discontent,  it  was  gener  ">  ''^^  ,  ^  ,;,^,,d  ,«  modify  those  sec- 

way  as  practically  to  a'"''*';;'';";;^  ,„  „b,,i„  ,he  consent  either 
The  men  felt  that  t"  '«!-«  ^e-  .    ^^^_^^^  ^^^^^^  ^^^^  ^,„„ 

of  their  employer  of  of  »  mu"'"°  ^„,k  elsewhere  even 

leave  their'  place  of  ^"^P'''  ."^t^,^  \™  „  ;„  a  condition  of  indus- 
at  higher  wages,  practically  placed  the  unanimous  m 

tHal  servitude.     Hie  comm,s.on   wje     ^^^  ^^^^.  ^^  ^^^  .^ 

giving  their  approval  '°  ;'''*;;'  "layers  were  fearful  of  the 
tuhongh  some  of  them  stated  ^atempy       ^,^^_^^^^^,  ^^ 

results  on  '^e  mobility  of  labo    <^^^^_^^.^^  ^^.„  ,,,      „.U- 
certificates,  and  the  lat."«";*";,,P^,  substituted  for  the  leav- 
,ons  which  it  was  uiu^rs  ood  w    -  -IJ^e^^^^^^ 
ing  certificates  when  he  '*""«",  „f  ^^ch  more  m  some 
%)  Dilution  "V*%7;:Zrit  seemed  to .«  slight  when 
districts  than  in  others.   OPP"  ^'*  ""^^  „,„,,i,y.     Complaim  was 
,he  workers  were  '""J'""'' ;J,,"^,"e  not  consulted,  nor  their 
„ade,  however,  that  the  «"  ^^"^  ,   ^  ,„,„p,ing  dilution,  as 
consent  obtained  by  '^•-P'">X,X  ,,y  the   Munitions  Acts, 
they  apparently   f^>'  ^^^^  fj^e  proposal  to  extend  dilu- 
Opposition  was  much  stro^^^  °  ^^^  ^..^^d  that  this  was  a 
tion  to  private  work,      me  w  government  at  the 

di„ct  violation  of  the  P---^ J-^^j'^  '^  ,\tend  the  plan  to 
ti^e  the  Munitions  Acts  we^aopted.^^^^  ^^^^^^  ^  ^^^^^^  ^j 

commercial  undertakings  *':'•"';"  „  ^3,  ,he  last  straw 

increasing  the  P™fi-  '^  >-;  ';,,:^:C,  „een  imposed  upon  the 
in  an  accumulation  of  '>  '"'"=";^;;^ j  ,,fn,cd  to  listen  to  their 
^vorkers  by  a  S"\"""t.Is  to  trade  union  officials  were  m 
complaints  and  when  ^-^P^.'^  upon  themselves  to  call  strikes 

vain  the  shop  ^'e-rd^^ol^   '  up  ^^  ^  ^^.^^.^^  ^^^^^^^  „„  .^e 

in  the  spring  of  101'  ami  in  y^ 

part  of  thousands  of  workers. 
,.I„duslrialVnrcst.lcc.cit..vi2. 


^«  'he  commissions  which  m,  i  --'^ 

(c)  The  comnlnm.    t  /  ..  ■  *'<^l'- 

adopted.  "  *  *»"'  of  knovvledec  of  ,1,  ,  '" 

^  hardly  have  been  foreseen     ru     T''"'""'' 


■  pp.  21-22. 


„,  .he  ,r.«esse.  oC  7;^^ -^-f,;  ,  .„  .:|  Uove.l  machinery 
of  liltle  .raining  a"-'  '»«=  ."^  «  "  ;,;„„  „„,w  an.l  a.  the 

enabUM  these  new  laborer,.  *™  '^^f„(  Uelore  the  war  and 
„U1  piece  rate,  to  earn  --;  ",'^ "  ,7:,i„,a  «..,rUer,  ustally  a 
,„.,re  that,  was  l,en-K  '"""'  '^^Ji,      „,  Engineers,  who  was 

tne»c  ua  .u.  vv»st  M  lUanils  area . 

missioners  tor  the  West  Mu  ^^  ^^_^„  ,^<, 

""•  ^"^  ""n  '^  i,  ul»  ocd,  by  worker.  -''^""J'Zi,  »k.iwa  m.n. 

taking  »"  '""•  .  .        ,i(,',  txperienct 

behind  him  >c«  .  ||"',°'f  fhelinry  .0  hi.  ««'"'^'   ',".,', he  lei", 
to  hi«  pocket.     H»  8"t  „^,„g  up  «I*""°"       „„  „i,h  the 

certificate   .y..""  .''V;"^  „ "rrecognized  by  .he  «".''^»;';h»'b     •  bigger 

L  worker,  for  this  would   "  i»c<  ^^__^^  ^,g„,. 

t.  do  .hi.  .hey  10  "o. .«  .b-  w'^  ,„  ^y  „„cern.ng 

Although  all  the  commtss.ons  h"         ^     ,,„„  were  few 

Lker  be  placed  on  p.ece  w"-^"'  ™,.    . ,,     The  one  practicable 


m 

;r- 

;ce 

ng 

Dol 

me 

He 

nus 


£5^?'^--'-^::^^^^^  -^ 

"on  which  r   .         ""  """'■we,,  ar.-,    ",  ""  '"""^  ».ii.i  ,l„. 

other  ,uUtTslt  .   ""'""•"'•"  '  »'■ '  "-  c,t  """'""■"■ 

^hare  ,he  wr';k'' .  ™"""-«'""ers  seem.  U,    ,^    ■"'- '""'"' 

?over„men.  roit™    ^  ■;*•;!«  ".""  '"'^  express  /    'i,     :"  ,'  '•"  '^ 
'"  'he  minds  of  the  1 '?""'"'    ""-ers  ,hi„k   h!    ,     ,'  ""' 

meeting  (he  con,l,v  K^^mment  is  matin  "  '"^  "° 

'"-  if  van-;'  trrT"'"'  ■^'"'"'"  ■-;,?;.  r;; ""' 

ir:::,:;--'^'      ''"'-- -"'^"^^^-^ 
---^cj:s-?:t-:-.o..,.em .,. 

whe,her  ,hl  ~"'™^-'"y    between    2^    '"'^  -settlements  in 
•/*"'■.  pp.  95,  102.  215. 


lands  and  in  the  southeastern  area  '"«  "°':  ,  ^  „,e 

tribunals  is  objected  to  and  the  men  'f  j^Tt  f  j  e"  ionabk 

In  Wales  the  commission  hnds  tnat     iici<.v=  '     „  „„,i  a 

golerltt  in  effecting  settlements  oi^^^^XS^t^ 
iecuent  source  o™'-^-  "  rr^i^irtance."  ' 
led  to  stoppages  of  work  m  '"''"^"^  „^^hinerv  set  up  to  deal 
This  commission  also  claims  ^YJ^^^lto^^rlroJ.^r..  the 
with  disputes  and  claims  for  advances  is  too  ^^"l^'. 

on  a  s  rike      ="=  |  j^e  reconstiuction  com- 

::ur':^'t^o::^^"A:"^-ethod  of  settim.  industri. 
differences. 

Operation  of  Military  Service  Acts 
3     The  operation  of  the  Military  Service  Acts  is  the  'hir^  o[ 
,he  major  clauses  of  industrial  unrest  as  given  in  the  Barnes 

summary. 
1  ItiduHrial  L'nresI,  he.  £■(.,  p.  ^6. 
'■  Ibid.,  pp.  48-4>,. 
'lh:d.,VP-  '■'•  '''■ 
<  Ibid.,  p   97 
•;/>«..  p.  164 
'Ibid.,  pp.  211-?'f 
'  Ibid.,  pr    K4-165. 


:ii: 


"°'  oppose  mi/itarv  "^  '''■""■•'«  are  i„va,  /  ""^  K'-'^a' 

•he  -orkers  a  e  Jear"-"""™-     ^'^  al    of  T'  ""'  "'e>'  <'« 

"P'H'on  ;,el<|  e,erv>vh  ^™"''"'   Prohal.l  "  "'  "'<-' 

^^^»^"'-y.,r      r"''^""-'avs;    '^^'''>'  "Presses   ,l,e 

P«™co,  a„,|  of  ,         ^'  """""S  classes  '^'■•""  '^"s  is    in  ,1, 

"'^  ""ions  to  Xh  it  ,?■'■;  """^  "'  P^oceciu"  Cs  7'""^  ""^  "-^ 
O"  ■he  other  han<I  1  T  '"^'^  ='"d  by  ^olni  '""'"'  '"  "y 
"•e  unions  affeCed     ^     u""  '^="''=  "^d  scheme  "''  '"^  '"■'"■ 

complained  oftotf  "'  ■^'"^''^^'"ated  Si LrVr!""'^'"™. 
'hat  they  had  l«e„  „  r'""""^"'  P'«'ges  anH  "^  ^"^'"e^^. 
'■«"^"ce  of  cards  1*^^  '°  ^'^■^'  ^'^Pensfrnre  °  """P'^'""' 
-^".v  gone  in,'':;;"^^^.^^;-- withdrawn  Mor  T"°"  '°^  '"^ 
■"^''e  their  report  h  '^'  ""^  "'"'e  the   ever^    '^"""  ha.l 

c^»-ng  serious Tre,,     7'^^'  '^e  trade  card      s'  ^""""'^'ons 

f»'t«avep™„,„,      ,  '  ""■^■«d  for  the 


m 


,„  ,ITZ  «ho  had  been  ^-"-V^^.'.i'.fUwTe  heard  in  pe^on 
'"      cL^laint  con,n,i..ee.  *"1'>;°-'',  *';*;„  have  been  .he  pracuce  to 

^„e.y  by  ""*'"V,HaM,nl  led  men  (d.luUn.s)  go,  red  card,  wh, 

preference  over  them.  ^.  ^g^plaint 

(3  ,  There  were  othe.  and  ^^^XTZ^M^^^-"  '<>  '^' 
inUanl  to  the  Military  l^^--^^^;  „„„,.,  =^e,  c,«.»^a,ms 
e„pluymer,t  itt  incl-tn-  °' f  ^'^'Xwe.l  to  serfe  down  «nh  an 
that  men  once  rejected  w  -  -»^  ^  ^^„^,  „p.  that  men  who 
assurance  that  they  «"""!  ""'//^;",,  ,g„n  callerl  up.  that  con- 

,„<1  fought  and  ten  'I'-^^K'"^;;  \h,t  businesses  butlt  up  by 
scienttous  objectors  were  not  e»^^^__^^    ^^^^  ,^,  of- 

,„  .ndividual  were  not  g'«n  "  »"  ^^^  ^f,,;,,.  to  dtscuss 
ficials  at  times  refuse.1  '°  -^^  ^^  ,,„„i„g  .ecrutt.ng  lacked 
grievances  of  the  men   that  o*  ^^^^  incompetent  and 

business  experience,  that  ^^^l^^^^^,„  their  examinations  and 
„ere  «.bj«ting  men  to  un  ,a  r    eatm  ^^^^  ^^^^  ^^^  ^^^^  ^^^^^^    , 

that  skilled  men  ^^";'. '^^^P'^'T^ere  drafted  into  lal«r  or  work 
„.„orkofnat,ona  .mp<jan-;^^^^    ^^  ^^^^  ^^,,,,  ,„  not 

battalions,  where  they    spen 

re,,uire  technical  '"tntng.  ;„„,  admitted  were  ta.*ts 

Most  of  these  matters  th    comm         ^^^^^^,^^      ^^  ^^.^^ 

of  administration  ^-'-'f '  ^^^.^  „  that  a  great  part  o1  the 
«--'  ^y  -\t.:L  MrTTervtce  ..cts  could  have  ten 
unrest  caused  b>    tne  . 


'^^■^V'Wsn  ii^Km,. 


.f^ 


"voided  if  ,he  '""""""^  ^■•vwsT 

members..  ""^  '"  d-s.r.bute  exemp„o„     3„i"™P'"-- 

''™*   'o   £iieir 

4.    TheBa  "'""^''^  »-" '^-::"^^" '^— -„ 

"o"  -^etweengo  '  4:      '7"-^  "■^'  "-ere  L  •  a  v  "  ''"'"^'  «"" 
^^aminati„n  ofl       "'  <'^I«"ments  <le,,,„       .^"'  "'  '^""^ina- 

«^e  as  fo„o,,3 ,     "'^f  '"^"ers  compla.ne.l  „,-  „";'  '■'""'"■scions 
^'^    ^"^^e  are  too  "'  '"^^"'"'^ 

"''■■'^h  department  f  ""'■kmen  are  of,J'         ^    "''"'   '*i^"r 

"■->  difference r        '"P™'"^''  -^en  thev  ,  elr  '  i"^^  '°  '^-"•'"• 

(2)  Every  Jit„e  ,,„  .,  .  '  ■•"''"■stment  o, 

^'^Co„tradieC^^^^^^'^^-'"----etdm. 
Tr;r''^""-"    ^^-^  -"  "-..ons  are  sent  o.  ..„  , 

The  fono:^;-'  :i^°'""''°--    ■  ^°"'""  °«-="^  -h,, 

method  of  le«»      ""^"mmendations   ar,. 

"'  Cc;7^'"T'-»".»  .«'„"■  ■"  *  '■■■ 
^?"t:::«'- ■'" •'=-—» 


25.  BR.TISH    LABOR    COSDITIONS    AND    LECIM^TIUN 

,o  ,.bor.     Reference  .houUl  .«  made  Uy  him  to  the  approprtate 
'VX,^   officials   „f    ia>»r   an,l    ■munitions,    clothed    wHh 

""Tt.rrn"st,n,n,arv,  whde  admm.nK  that  there  .nay  W  a 
.:^;;rhnat.n,.t.ee.the^«™.e..^t.entsd.^^ 

,„g  with  labor,  says  that  much  o,   ^^^a  j^^""^        ^,.  ^  ,,,.,r 
reports  concerning  this  matter  arises   Irom  a  lack  ^'^ 

which  will  be  briefly  discussed  here. 

Bau  Hulsing  Conditions 

municipality  to  take  any  pract.ca   steps  to  ,leal  w,th 

"  tz:  irr::,;::!:^^;^  -ter .  an  .outed  cort^ 

..r:r;h:estJ;.n.,at.^     U^t.re.at^^^ 

establishment  of  V.ckers  (Ltd.)  'Y'^^'J' .  l^„„  „;,(>nu  to 

increase.1  its  working  population  d"-K  'h--     r^  _^^ 

Birrr."     tTc  ^m^sIU  Jve  figures  wh.h  show   that 

I  Industrial   Unrssl.  loc.  cit,  P-   "■ 
'  Ibid.,  p.  67. 


HiiiklS  I&#HliL'fl>'iM^'mQ  ^ 


^"■"e  were  lr,7r'"^'>' '"'■'>'»-   a       r  ?  --■'"'no,,..,..  3 
f  people  ;,ved  in     '"■"'"•'^'^"ces  ,,:   „, 

fr',-"  ■•'  ■■"'''"  «h;r  """"■  '^''  »■,,.'  ^  ,^^^^  ->"■  -.-  <■,.„ 

^  '"'J«r  lived    , ., ,    ', ■^"■'■'•a/  other  mem,..         '  '"'^'  '^-^  ■■.„ 

r^^^"  "> '-- , ;  :^  --n™  e::^^:  r  ^  ^--^ .:, 

T'>ey  were  verv  CI  T  ^'■"'■'''"^'  cas  T'"*-'""'"  "'■•'"s 
'"e-cusaWe  when  ,'  ''  "'^  -""•"o..  „,  w  ^"""-"es  ,-,f, 
™"""""«   Plam  '""'""'an/v   ,„  ,         "'' '"mm,.,,.  „„ 

r"  *'"■  ■'■<■■>  u,:j,'r"''  "-<»n.e„,e.  „„,  /  ■ 

Of '^cr- '"'"—,.,„,        "°""-'-- 

-^  °f  '!.e':;:::-"  '-.-e^errie  : --"•  --  a  .aue.  .,, 

ce:r"---'-:n::::;:rr 

'"»?  ''"nns  the  ,var  an,     ,  '"'■  '""'  '-een  nn.  '"  ""'""" 


.as  so.>y  feu.    The  >— X^-^a  Jnt  i.n,eaUU 

housing  accommodations  was 

government  action.  ^   housing  question  was 

unrest.' 

Liquor  Restkictions 

The  restrictions  on  thesale  and  ^-■^;^;::r  o"^  ^ 
,he  Barnes  summary  to  >«  «- °  .^,  ^^^issions  discuss  the 
certain  districts.     F>ve  of  the  e.gh  ^^„„i,,io„ers  from 

matter  as  -PP'-^'''^*''  ''!  ,  ^  eas  <»°  "°*  '"^""""  '"u  '"t 
the  Yorkshire  and  the  Wales  areas  ^j,^ 

Restrictions  and  the  only  menfon  of  ^m^^  ,^  _^  ^^_^^^^^^,^ 
^ssioners  from  ^^^l^^,:tl,...y  ,^^r.r  oii^^^^.^or 
fact "  that  no  complamt  was  ma 

restrictions.'  commissioners  say  that  while  "the 

1„  ,he  northeast  area  the  comm  ^^^  ^^^^^.^^  ^f     j^,. 

liquor  restrictions  have  not  generaUyle.  ^^  ^^ 
trial  unrest,"  the  restrictions  on  '!^^^  ,^„s  believed  that  beer 
be  brewed  had  led  to  ;«'"'";f.  /j^l  the  so-called  "  hot  or 
was  an  indispensable  >««"e^J°' "  ^ced  that  the  restrictions  on 
"heavy  "  trades.  H  they  ^"'"""'"f^f  ,ood  conservation,  the 
brewing  were  necessary  m  '^J  ^  "'^l^^^Lscence,  but  the  bebei 
laborers  would  accept  '^-"^^^'^^^^ion  was  being  used  a 

was  prevalent  that  the  f«>^  "^°"^"*    j  rt,is  the  great  body  of 
In  excuse  for  forcing  prohibition,  and  tn  ^^^^  ^^^ 

."orle"  opposed.  ,  T*^^  ^—l?  e^in     cfos.ng  hour  at 
modifications  of  die  o'^J-'^\l  „„,,heast  coast  might  be 


WW.,  pp.  18' '*■ '"■ 
5(W..  P  221. 
« Ibid.,  pp.  "-''■ 


.  206. 


'"  *e  north.        '""'"""^  '"•'^^^ 

"""  >>a,l  done  i^  '*'^''  »"  <he  cmm-  "■■■       ''"'■ey  ex 

°!  'he  commissions,  1     ,  ^"^•^■■nnient  con,r„l      '^T*  "'  >>«■• 
f ;  ."e  qn,„^  ,/;;  ^o,„„  e..en„  u,  ,„  ^    ;-  '  e  opinion 

^^commendations  are  1       .  '"'"'     Th.  sal         '  '"''"'^  °f 

area.'  ^^  "-ade  ,,y  the  comm.LirLT'"'""''  ^"'' 

^"  London  and  th  ,.  s""lhwest 

d'^ributionof  suL"      "'"^  ^"''  '>ritation  ■    ,   "^  '"  °'  ''  has 

"^^-p'-.o:£;;--^-.He,.a::.ehS^-tw''r 

'*"'•  pp.  118,  120 


mj 


262  DRITISU    LABOR   CONDITIONS   AND   LEGISLATION 

public  house,  arc  f.«iu.n.ly  clo«d  for  day.  xoge.h«  on  ^voun. 
of  want  of  supplies "  ' 

IxiHSTRiAL  Fatigue 

Industrial  fat.gue  ,s  another  acute  ....  -' ^^^^^J^^t^:! 
unrest,  according  to  the  Barnes  summary      '"  ^"^  ^  •omm.v 

here  is  plentv  of  evidence  to  ,.  ..c.tc  that  u  n,ay    x-  a  prcd.s 
plxsing  cause  for  complaint  in  .egard  to  other  matters. 

The  .ort<n,.n  ar.  tired  ».  o..,  -i';^f ;  ^^  ^^.^  ^  ^^^^^^ 
of  .heir  svork.  b».  i»  also  ..„.  •"  ■!"  -"->  ^^^  ^^  by  .lu-  war.  ha. 

.^;r  ci::tr;::«"ri::;";:"c,.«e.  ,^ ».  >.  na,  ..o.,. 

°'Me/:S:;  J^wZ.'c;;=  .aether  ,he  »cn*..  .he,  ar.  n.ai<,n.  are 
really  "cccs,ary.     (D.v,Mon2    <  „n.i..uou5  labor   an  J   duly 

There  h  ample  evidence  ''•  'l""*  "™,  ^  ,,„,,  „f  „ervous  e»haus.,on  m 
ex,ended  hc„„  ■l"^' '^ -^;  ."iVe  .hem  more  su,cep.,b,e  ,o  influ- 
large  mimhcrs  of  workers  wnieii  ii^=  ^^ 

e„ce,  eon.ribu.lng  to  unre,,      'I^-^"  .f,;  ,,^,,.3,   ,„,ig„.,  especially  among 

Considerable  evulence  was  S'""   '^'    "        „„  ,„       hours,     (Division  6.1  • 

,he  classes  who  have  been  ''^V^  '""^  ,"    'verwork,  uncer.a.n.y  as  .0 

A  con,li.ion   of  nervous  s.r.™  "•"''"'"'l  "'.^^^  ^,^,  ,„o  .en.le.l  ,0  ruffle 

combing  ou.,  res,r,e,.ons  on  '*;-;'^  .'^^^  tgir^ensitive  ,0  real  and  fancied 

th.  tempers  of  Ihe  nie-n  and  ...  make  .hem  mgn.. 

injuslice.     (Division  /.)'  ;„„   j,„i  industrial 

,Z:^-:L:r.tZ:::^l^.^^  P--V  ...cy  are  aggra. 

-^^::  JIrs  ;":  C  ^--ee  ye^J^crki^  a.  b.h  p^^ure^urn. 

long  hours  and  under  s're"""",  «'''''*'','''' .^:7^';";,,",,,„n  and  recupera- 
,„,.„.  Tb.>  have  been  denied  »"  "l-'":'"  '' J  ."1,  t  e  growing  physical 
,i„„,  and  .his,  .«..  a.  \'-'.  «''^"  '"";,";,  ^hera  rcgrCable  amount 
r=::?  l:!;*^.::""   -e=.".;ec.s  o.  .he  war,  .be  .ssues 

.  /,rf«jtri<./  i;i.r«'.  '«■  '''■■  P"   "*'*■ 
« Ihid..  p.  99. 
» Ibid.,  p.  27. 

•  ;^'J..  p.  41. 

»  /hid  ,  p.  106. 

•  ;Wd.,  p.  118. 
'  //.iff.,  p.  162. 
«  ,'(iid..  p.  221, 


"">tST«,.M,    ,.,.^^^^ 


2«3 


"""•  tradcj. 


^""■-A.v..M,.v,„t-.,..sKs 


Of,,,    ,  """"iR  Cm-sks 

"f  >^°^k  of  ra/lwav  „"''''■•■'""  ■''«"''^-->".l<,h         ''■■'"*'■''>• 
P'-'""ise.s  to  nav  „  ""'  "^  ""■  failure,  '  """''""ns 

"■e  northwest  art  '7,  "'"'  ^^^^  "^-'^  'n      e  J,  'l'^'  ■''■^  ""^ 
•^""junction   with   rv  ^'"^  '■"P'^yn.en,  nf',; '  „,    '"'"."^^""'  '"^ 

»u,hea.st.'  Tow  r'  '"'^^«»  °f  »„;„''„  "f"-  conditions 

''eemen.of  theLr^"  '"  ••'^^'■^"""'■e  an     tie  ""  """  "'^ 

com„,ission  from    h'"  '  ^'  "'  -^''^-al  y  are  ,,''"'>""""'^  "'^"- 

Casual  workTv  r  L™"'""'  ■''^''''■'  "''"'  '^^^  ""^ 

s;^rt!:f:rr"'^'^^''t::;;"^^'-'"--- 

'""e  unions  aTr^^'i'  ■^"""*  o!    Zt ZT"  '"''  "■'™- 

-"--  ".^^^MiSi: ::'  "^  ^ — -n  ':n:,;r-"^ 

"lecommissionersfr       ,,•"""  "•a''''"nions  -.r  ''''"  '" 

,"-  P"n-anen,  e  :,  X^^'-^  and  .Monn,o     .,   /'/"r'-"'  ''.v 
'°«'e'-inff«fthe,nr  '^"'"  °f  "I'lustri.l  '" '"^""S 

"'-•-"";o::a;;:r:;;r' 7---' alii; 'a  ::r;''''' '''^ 
-^ "-  'i"e..,y  to  th":  T'^^^r """^ '-"S::  r-;- 

,  '*!■'  ■  l>.  109 

.'*!■'.  r.  Ill 
'^<  PP.  159,  ,60,.  ,s4_,8s. 


,04  BWT.su    UABOli  CONDITIO.  -    -  ■  ^^^^    ^^j_ 

=rS-=".;:r^-- — 

by  Scotch  workmen.' 

the  rea<\er  of  the  re  ».r  ^  .  ;„H.>tr.^il  "'     'Lrac.er  of  ll« 

commissions  as  -'^^^^     The  ""=""""'"^'1;  uo  ernmen. 
cipal  causes  for  Us    x>ste  ._    ,„,,i„n  upon  the  ^ 

sports  .li.ln"V-^;'^;";;,in.  and  steps  wer  a  -c  ^^_^ 
,Lh  ha.l  '-''";"„«,„,:.„  departments  to  c->  ^^  ^^^^^ 
"^  "'^  ^'ir;;:     nlae  .»•   .he  »7"-r:;:;ucah,e  nature. 

,ecommen.la..  m^  ^     ^^  the  t,me  when  ^^^^  ^^„„,..ou^  -n 
\\  ,lhm  SIX  weeks  "  ,  j^e  report-  ol  tl.ee  ^^^^^ 

i,,er  for  Lahot.  hacl  P  ---_^  >»"-<"• ''^^  ""trying  out  the 
industrialunresttothe  ^^__^  ^j.^^^„„„  1  ,oUowi"« ''"^^  ' ' 

"'"^'Xi- oft^commissions  alon«  ^  ^^^^^.^  .ad 

"Tfo-^   V,V»««rf  ''^'"""tTthe  rehKtiou  of  prices,  the 

^-  I       .Ipfinite  scheme  for  ttie  r     „,  .v-e  distrihutmn  ot 

formulate,!  a  .»  ^^^^  ^^g„,,„<,n  "    ^l"^  '  j,^  ^^w  V^a" 

stoppage  of  P^'fi'"""!^^  „n  the  point  of  P""'."e  '"  ^  ,       ,ocal 

.-.,1  fnoiis  and  was  on         j  nmiointmeni   "j 

essential  foou.  .^^,„^,eJ   the   api  ^^,„. 

in  operation^      The  P         ^^^j^..^  m  ev">  ^    ^r  an<l  assist 
authorities  of  food  contro  ^^^  ^.^^^^^  '^"".'"       vuximum 

poli.an  horouKh  to  coop  r.     w  ^^^^^  ^^^^^  regulations.    Mx^^^  ^^ 


retailfr     /„  .  '  VREsi 

"'^'".  ."Chen.c,  f,,'     '"'"""'^"1  was  i„  „,",  "'    '"'l>"ru,l  „„„- 

"^""'^  -  -ml;'; '"'«'-""« a,;,; :; """  -=^"'- 

-->  -fei^^J™"'  '^  '< ';<^'  tr;-^  "  -a. 

''-■'-c..pa.ionJ  Tht'^V''  '^"  ^'>'""l  >«  '""'•'"  "'<■ 

'o  prevent  arl,i,„r     ?    ""'""^""^'"lai„e,|     '  "-^-nera- 

''"''"K  iron,  ,l,e   ,  '      '"'''  '"  ""'^avor  ,0  eorr        ?""■■"  ™"'- 
'^'""■^''r  ,0  „,,./'''  •-'n>e..<l„K,„  ,,„,  ,,,,  „''  ''""^  •■•n<l  u„sk,/,c.,| 

::'^f^'->'..M^^:-^;,:---e::::;L-^^';a,a.a. 


•'''"'""■  S^P'^b^r  26,,,,;. 


v'embcr.   igiy 


»«c«oco»Tf  nsowTioN  mi  chaut 

(ANSI  ond  ISO  leST  CM««I  No.  2) 


1.0 


|2J      |M 

LS    |2|0 
1.8 


APPLIED  IM^GE    In. 

ins   Eojl  Main  Strui 

Rocf>»j(»r.   r4«i>  York        UB09       US* 

(716)   482  -  0300  -  Phon, 

(71fi)  288-  5989  -  Fo, 


260 


ll!': 


,«,  BRITISH    LABOR    CONDITIONS    AN.    .EOSUATION 

occasioned  by  the  operation  of  the  Nfc  ^^;;iX^^ 
thought,  would  be  lessened  --™^.^;J^>.  j  ^' J^  „,,,,„  de- 

interests  which  had  arisen.  reaching  scheme 

4.    Housing.    "^  Barnes  reported  that  a    ar«a       8^ 
of  housing  after  the  war  was    '-"f  ""^er  f  " 
Government  Board  through  the  local  -"h°  >'  ^^      eommissions 

fo.  agrLltural  -•<-X™  ,        TweeuT  was   that 

-r^-r^a^s^i.son..t.^^^ 

:r;::r:="rsS;>e  to  those  whose  earn. 

^"?  ^:'':;  ^r::iS'-i'-o«.     These  had  been  at  least 

partially  overcome  by  recent  l;g>^;''°"-        ,^  ^^^„,„  ^^o  had 

^-    f r::::e'si:5:eTor  :ZTZ  who  had  lost  their 

^::^  ::.:rer:i ;  e.ten^ng  t- ^- ^  »:cr:; 

r' C— td  W  te'ig  up  of  trade  constitutions  were 


.     .  '•■*'I>LSTR1.,L    LXREST 

I*"'?  dealt  vith  as  rapidly  a,  „     ■  "«' 

would  warrant.'  '^    ^  "'  "'^  ""portance  of  the  subjects 


267 


Strike  ,n  the  ENCNEEmx, 


Ixni'STRY 


Ho       f         h  -'«'M.    INni'STRY 

-•sfied  .HeVorrrolt:;:^^^  "■"""-'  ^^'"-o"  Have 
'ndustrial  disputes  for  thecal  ""  '"  '">■    The  record  of 

ll  ^^^«  ao  not  indicLl'  haT  Xh^;  '"''  --i  'He  earl,t° 
has  been  quieted  to  any  conside^b  '.'"'"'  '"  ^"■•"  ^'-''^i" 
deeper  causes  can  not  be  reS  u-^  ''l^"''  P^"l'ably  the 
eont,nues.  How  ready  the  work il  I  "'  "^""  °'  ^^ ""'e 
to  respond  to  real  -r  assum;,r  ^^  engineering  trades  are 

a-'y.  i«8)  strike  ca:::rbrthT";:r '  f."°^"'  ">  '"^  - 

enpneenng  industry  in  Jul/  9,„  '"'''''7°'  This  strike  in  the 
widespread  discontent  wh.ch  ha!  !'  ''"'  f'-'Jamentally  to  a 
■"  'hese  trades  (l)  over  tl  "  P'""'™'  '"^  several  vear! 

-; -er  was  actually  hi-— ~p;.n.o. 

Churchill)  had  issued  secret  oder'to  '"""^  ^^^-  Winston 

and  elsewhere.  "  forbidding  them  und"  ,"  '""'  '"  C°-"'ry 
engage  any  new  or  additional  skm'ed'  u'^"*^  '""=>"'>^.  «o 

free  to  increase  the  dilution  by  tS„n'  "^""  '^''""^  "^em 
o  ders  were  apparently  to  be  LeS™  "'"''"''' ""'■  ^hese 
Ln fortunately,  one  firm  nailed    hj  1  ™"^'"'"''  '""'■'^• 

of  the  trade  union  officials  obsert^^  ?  " ,"'  ^^'^-  ^"'^  as  one 
■"'he  fire.'  To  the  men  it  seemed;  If  7  "'^'^'  '  "'^  '^'  "as 
't  ■mpracticable  for  anv  man  to   V  """""  "as  to  make 

penalty  not  only  of  loss'of  fncome  1 1"'^  "is  employers,  un 
«P  for  the  army.-    The  go  e"m  'mt:  ",'  '  ''"'"'"  -"'"^ 
'Ch^isHan  y„>„„  „    ■  "^'"ent  acted  vigorously  in  the 


CHAPTER  X 
Industrial  Reconstruction 

but  not  many  people  ha™    1     1  "'"'  '™''''  '""  "'^  ^^'^r," 

endeavoring  .oa^cna'iui""."  '''''''"^'^'>-  "'^  -^^-  "f 
relations  of  i„  w  a,  t"  f^e  ^h  ""  '^  ^"^"^'"^  ""'-'"■^' 
to  insure  an  improv  ™m  in  Z  T^"  ""  ''^  ™"'™"'=<'  »  as 
'^e..a..3ss:rn,Xn;r;K^^^^ 

classes.  The  goietn  "o fG":  Bn;  '"'"^  "^  '"^  '^^""^ 
at  the  outset  and  gave  orgLted  ..^  """"^"''"^  ""'^  '''' 

councils  of  the  nation  !n?i         I     \  ^  P"""™  '"  'he  war 

th.  trade  unions  crS.™.,'/'"  t'"'''""  "''  '"^  '^^''"^  "' 
gram.  I„  .p,,  „/=':;r^  Z  ceT  oT'  '""  '"'T"^'  P"" 
developed  between  the  coaiilmn  T  '""'°"   '^''''^''   ^ave 

leading  trade  union.  ,  and  Hpfr:;  m^";;  ''"'!  '""^^  "'  "- 
tent,  it  is  only  fai.  t„    ^^  1"^  "'''  '"''"^"•'^'  ^iscon- 

for  long  to  receive  he  'unoorr'"""""'  "''  "''"  ^^''^^ 
and  of  the  great  .nVorVT^hL^lrerl^  '"^  '^^"^  '-^- 

G0VH..V,«HKT    RECOON-ITrON   OK   LabOR   DeMANDS 

The  government  has,  on  its  nart    „        r 


\ 


\ 


A 


270  BK.TISU    LABOR   CONDITIONS  AND  UEOISLATION 

,  ■  ,  ,rv  ilv,n  most  industrial  man- 
part  in  the  mana,cn,.m  o  '"'^  ,^  J^.^n  willing  to  con- 
agers  or  governmenta,  leaders  '"^"^  '"  :„,  „(  view  m 

ee^le  to  it.    A  most  striKmg  eKamp>e  of  th.s  ™j>  ^^  ^^^^^  ^^^^ 
government  circles  .s  to  '«=  'o""''  ^^  ^"        ,  ^^^  Labor  party 

,^y  Mr.  '-'oy'lS-:^%'%V  ft  present  to  the  Prime  Min- 
on  Tuesday,   March  6    IJl  .  t     i  ^^^^  ^^^^^^^^   ^^  ^ 

ister  a  series  "Vn  Manche  "  the  preceding  January  to 
party  conference  held  ■",  Ma"^hest"  t  J  ^;^^^„„  „f  th,s 
discuss  "after  the  war'  probems.  Th  J^^  .^  ^^^  ^^^^  ,^ 
statement  lies,  of  »""^' '"  f^^^^ Ln  of  a  personal  opinion, 
an  informal  manner  and  ^^^'JZ  ■  -est  offic.al  position  in 
it  was  made  by  a  n'^'" ''^'="Py;"f  '  ,,    parliament  as  its  leader. 

presents  an  oppor- 

„p„n  that  a,ol«n  mass  •'""•"^'^'^.f,,,  ,hat  what  is  """r, f.^,  f  „f'"^ 
and  determinat.on.  .    .    •   '  h™''  "      .  „  ji„c,  ihe  destinies  ot   au 

Z,  war  settlement  is  the  settlement  *at  «■!'  ^^  p,.„„,i  ,or 

t«  ieve  the  country  »ill  be  m  a  mo  e  enrtms  ^     ^.__.^^^.  ^^      ,e„ 

™„^d  for  the  time  being-m  a  greater  mood  10  .^  ^,„  ^^^ 

Te  op;""-''  -  -'^''  '"""^  ;t«i  s  :«:  .ar  beyond  either  your 
away,  1  wi"  "<«  »»  '""T'  \  ir  ehildrerfs.  Therefore,  you  are  domg 
tr'^r  mine,  and  ^"'''■'^^^^tghAo      -i''-''^'  '"'  ""=""""1'^.  ,0 

:^  ^^sv^^^^^ '  --  -"■  ""*  ^°" "' "  ^ : 
'""■'■"  tf  rt:;  irTm  rpt.:  .be  b-e.ter  -^^''^^^^rrdLt-  ■ . 

rU:  tl^r-y  r rrr h^perair  cirXot  be  the  .«. 
just  drop  that  as  a  hmt,  >"«  '  ""^  ^^  ;,  „ery  class  insists  on  ff""*  ""^ 


IIBlllt 


"*WSTR,A,.    RECONSTRICT.O.V 


^ead   .he  social   reconstruction  'rn.r  ■"'  '"  '•"'  '^'"^  ''^ve 

>«">••'     The  executive  comm",  t'eTf  "  °'    ""'   """''   '-^- 
epor.  to  the  Nottingham  Con       „  f  :  fV'""'-    '"   "^  ^ -"^l 
'Iryly  apropos  this  interview:  '"  ''"""''■^  somewhai 

On  that  occasion  the  Prim.  «.■  ■ 

Oa,  been  ,„„e  h„,,,„„  .^  ,„;";;;    7-;'™  '"-  be  gathered 
K  ■"(.  ,  rime  Minisier's  advice." 


R^CO.ST«.CT,0.    P«ooR.M    „.    B„„,„ 


The  fir  ,  "    '^^«"<:'^TIOK 

«eMofS:rrnr;rvr:'°"^  °^  -'--  « ■■"  .^e 

at  least  no.  fro™  .h^  lair  'aZ:"  n"'"  "'''""''  ""'— 
'  e  w„  .he  Economics  Section  ohBr^-rf  ""  ""'  ^^^^  "^ 
Advancement  of  Science  set  itself  ,h,  •^■«™""'™  for  the 
what  mtensively,  the  econom  c  Ini  fin.  "t  "'  •''""-^'•"?>  »me- 
and  the  way  in  which  the  changes  in  ?  '"°''^'""  "'  "'^  -" 
.^y  'he  war  could  be  turned  toTod'"""^'".^'  "'^''™^  -"-<» 
'"d-ery  in  the  after  the  war  pe'bd     "™"'  '"  '"^  --""^  °f 

J  he  first  year's  report '  of  ft., 
present  the  subject  of  industrLl  rlT'""'  ""'^'"'"^  "''''  "« 
way.    In  the  published  speech"'  on  M         '"  '"'  ""'^""^  '^"h 
harmony  there  are  somf  nteTes^inf    'r™""""  "'  '""-'-^1 
'"dustrtal  experience  of  thev^  LI?     f  '^''"^"'"^  ""'  "''  'he 

^'kt:,r,  t '^■-  ■f-.wX',.--^''"'^™"  »'  '"'  L,b„r  Par,,,  p.  „^ 
"-C^^J^tSsSr  ^/^™-    '""'"'"''   "   '^"    '--  ^^'* 


•J72 


UKITISH 


LABOR   CONDITIONS    AND   I.EGISLAI  ION 


.e,«r-  of  the  ^'"^^^'^y^  ^'^^^li  industry  which  is  „f 

„.,„,„.c,  a  program  for    "^  '^j""^^'^'^" ,,,,„„,,, es  but  because  it 

i„    rest,  not  only  for  ''>-"»^^-  '7;^'  ^  „f  ,he  government's 

.ontains  the  germs  of  the  '«'."  "'""  ;       industrial  councils 

Koconstruction  Comm.ttee  on  ,omt  ^'-"^"^^   "^      ^,-^-^^  Labor 

and  perhaps  of  some  port.on  of  the  program  of  the  B 

P"'^-  u.    u-     r.!  this  British  Association  committee  was 

The  membership  of  this  Britisn  n  ,        j^,  re- 

com,K>se<l  of  not  only  P^'f-^^^^arSott  and  Conner, 
fornu.rs.likeI-rofessorsKiri.aWy^Cha  m^^^^^  ^^^    ^.^^^^ 

Archdeacon  Cunningham,  »«"•  <-  "'^^  ^ugh  Bell.  Sir  C.  W. 
Ball,  but  of  prominent  employers  like  S-r  Hug  ,.^^ 

Macara  and  Mr.  Pickup  H"l>^-^,=>"'' °J^  ;to"ung  Professor 
Hon.  C.  W.  Bowerman  and  ^''^,  .  ""'^,  °^  „ho  was  also  a 
Chapman  is  the  only  member  o    this  co-m         -ho  ^^^^,^^^^ 

member  of  the  -'■«'"""■"^^°„'J,d™  industrial  councils, 
which  made  the  report  on  J°'"'/'="™'"f^'   „haps  too  much 

This  may  ^^ -^y;::^:^^'::^^.^  between 
importance  should  not  be  attached  ^^^^.^^^^  ^^^  ^^^^^^ 

,he  proposals  o      ^e  Bnt.  h  A^     ^._^^.^^^  ^^^^^  ^^^^  ^^^ 
contained  in  the  VVmtiey  rep  _,  ^j  ^^„y 

struction  of  industry  seem  to  have  been    n 
persons.    They  had  already  *-"f/,,Pf,^i"/g,eements  made 
ducers  cooperative  societies  and  in  '';'';="''    ^j,  ,,,oeia- 

hy  the  best  o^f^^:::fi::r^'j^:z^^^o.  to  ti. 

tions  in  several  industries  -Wen  g  .  ^  management, 

:rf:::itr: -=----- --^^^ 

'"  wXT aCdy  noted  '  the  causes  of  industrH  unrest  as  they 
3  Chapter  IX. 


INUl  .STRIAI.    HECONSTKICTION 


7.1 


art  set  f.irth  in  this  refxirt  of  the  c.inmitti'c  i.:  ilie  Britisli  Asso- 
ciati.m.     The  reconmienilations  which  the  comniiiiee  makes  for 
the  removal,  or  at  least  the  alleviation,  of  these  causes  are  as 
follows:  ( 1 )  .An  improvement  in  the  general  atiiiiule  and  outlook 
of  employers  and  workmen,  which  could  be  accomplished,  the 
committee  thinks,  hy  frankness  on  both  sides  and  l,v  a  willing- 
ness on  the  part  of  l«,th  employers  and  w.irkers  to  discuss  indu- 
trial  matters  together,  by  a  l)elter  knowlclge  on  Iwth  si<..s  of 
"  the  funilamental  facts  and  principles  of  economics."  and  by 
having  employers  consider  the  collective  cost  of  labor,  and  not 
the  total  amount  of  wages  earned  by  the  workman  each  week: 
(•-•)  better  machinery  for  dealing  with  disputes,  calling  for  a 
recognition  by  the  state  of  approved  as.sociations  of  employers 
and  trade  unions  and  of  the  enforcement  of  trade  agreements, 
for  "  permanent  joint  boards  or  committees  "  in  each  industry, 
"  to  consider  all  matters  of  common  interest  to  both  employers' 
and  employed,"  and  of  a  national  joint  board,  composed  of  repre- 
sentatives of  employers  and  workers,  similar  to  the  industrial 
councd  created  by  the  government  in  1911,  but  whose  services 
had  never  been  utilized:  ( :) )  a  lietter  organization  of  industry 
along  lines  which  will  presently  \k  shown ;  and  ( 4 )  certain  post- 
war arrangements  in  rogard  to  demobilization,  the  carrying  out 
of  the  government's  agreements  with  the  trade  unions  and  an 
effort  to  forecast  commercial  and  financial  development  with  a 
view  to  the  deterriination  of  a  labor  program.' 

The  suggestions  in  regard  to  industrial  boards  or  committees 
and  of  a  national  joint  board  to  settle  industrial  d.sputes  bear  a 
close  resemblance  to  those  later  made  by  the  Reconstruction 
Comm  ..-e,  but  the  most  interesting  suggestions  by  the  British 
Associa'ion  committee  are  found  in  the  section  c',)  relating  to 
the  organization  of  industry.  The  committee  begins  its  recom- 
mendations under  this  heading  with  the  advice :  "  Thai  the  nms- 
iily  for  cooperation  between  employers  and  employed  t  •  frankly 
recognized  by  both  parties."  Calling  attention  to  the  interde- 
pendence in  industry  of  capital  and  labor,  the  committee  urges 
emplryers  to  refrain  from  speeding  up  production  to  the  point 
'KirkaUy,  op.  cil.,  pp.  40-52. 


'i  •  'I 


274  BR.T.SH    LABOR   COND.T.ONS   ANB   LEG.StAT.ON 

in  which  work  wa.  ""V  ^'-^^"l^;^  ,' J  V^;;  „,,,e„'  would 
work  ahernate  w.th  periods  o     lackn^s^  P  ,.^^ 

be  more  difficult  and  -  '«"' f  ^^^^'^  "hThighest  results  in 
industry  as  far  as  possible.  To  »«"«';'  f  .^  educing, 
production  when  two  or  "^"\P'''°"\ZZZ  ioint  product, 
?here  must  be  an  equitable  method  of    harm^  ,hMo^^   f^d  with 

A.r  that  the  different  parties  concerned  shall  ne  saxi. 
,„  order  that  the  dine  ep  ^„„i„„  n,akt.  no  recom- 

air'r.". .... ..  •-  -  jr*"  r.'".';t 

to  suggest.'  .J  J    f  cooperation  be- 

The  committee's  suggestions  ^^ '''*/;'"   ^,,,  „f  pro.luction 

tween  employers  and  employed  >"  *e  P  °«f  =j  ^^^  „„„ge- 

„e  such  a  departure  ^^°l^:  f^Xr^'^l  made  by  the 

pl^r::::;:s:::-^--"^--°-^^ 

,he  mere  di,.ribu.io-.,  of  .he  produm  °^^"<'^;'^  ;„  ^  „,;.,  „,  coop.r«.v. 
p,oc«scs  of  production,  as  ^  .'''"""i, '"h.  parties  cnncern.d  work  .o- 
actions  »hich  can  b.  accomphshru  b  «  .f  '^^'  ^^„  ^^  „„;.,ed  only 

g«hcr  «i.h  full  confidence  m  '''^''^^^JZ''^'''''  ^^"'  '"  """■™"" 
f,  all  .ho,c  engaged  ,n  .ndus.ry  fee.  .ha.    hey  ^^     ^^  ^^^  ^.^^ 

'resrarn^™-ratr:adfb;V.;^a.e«.  and,  if  th.  wo.,  people  are 
'  KirWaldy,  op.  cil.,  PP-  **^- 


INDl-STRUL    RECONSTRI  f-riON 


H:Hi::;';J:;::i^.."""" "-  --  - » ,„..  „„„,„„.  ,^  ^„^. 

com-cmed.  bue  wi,h  o.hcr,   ,,.,;  VoVk  ,"        ■" "  '"'■"' ■>  '"•li'.v.ly 

-n-hn.ry,  i,  i,  ,„,„,„■  cn„c,t,T    Th  "     u"T""7  ""'  ""  '"""  "< 
'"  '^"""'"'■i  wilh  l,ri„gi„B  „,„„|,er  ,1„.  ,  ff        ',"/     """'"'■i"™'  which 

't  ..  .mp„r,.n,  ,h.,  ,hc  „„„  c,p„  |J    ,'    " ".     I    "   "" ""■  '""""""• 

•nd  the  h,„  «.,  o,  „,„,i„^  .hi.  i!,  „;:„''""  ''■""•  "'-  •"-»».mrn,, 
•»  11   rxi.u   today.  ""    <> ''-'"i  "f  free  rmrr|.ri.t 

Thtre   arc   mhcr   branrh..      (       '"^^m  "iid.T  ilicir  conircl. 

-rjin„.,  '.c.o.e,':i;;:;;':,  ,z"r:r,r;,:'r""*''  -""  ""■  "-""< 

worker,  and  ,h,  mana„,„c„,,     Tl„v  a^c     Ih        '  '"""""■■■"  h«wc.„  ,hc 
>r«  .ometime,  delegate,!  t„  „„rk,  tna.Le  ,  n''rf"  '"  "  '""  '=""'>■ 

pr.c,«  arran„„,e„t  a,  ,„  hour,  of  wn  kre  ,  n    i    r'""',.'''''  """'""  "" 
of  machinery.  ,he  subdivi,,io„  and  L  linroV  ,"""""«  ''"'"■  "'*"l 

matter,  mi.h,  be  detertnined  ».th  the  a     L"  e     f"'      """''"'  ""^      ""- 
who  know  the  condition,  e,i,tin«r  in  tlfe        ,  c     ''"mmMtve  „r  worktr, 

"0.  be  ..„  entirely  in  t„e  hl^d^o  ,  "J,  "Z'  „l  ■  '"'""'""'""  ™'"" 
work,hop  ,0  controlled,  and  it  would  be  l^Th  '"'  """  ''"•  "'" 

.11  those  engaged  in  it  to  increase  hi,  o  1 ,,'"'"","  "'  ""•  '"''""''  ""'' 
committee  would  be  able  .o  guard  Zl°  """''  "  '""'''I''    «">''  » 

remove  one  o(  the  main  a„«,  to  whi  b  .""'"  '""'''""  ""■  '•"'  ""'"d 
Industry  would  be  likely  .0  1,:',,."™;°""'  "■""■",  "  «-">""■)■ 
«r.ctlo,„.  but  also  fron  .he  r.iore  willing  rl,.  r^"""'  "'  ""="  ''- 
possible  saving  in  the  cost  o  sune  isL T'"""  "'  ""  "-■"■"  >"d  the 
f-ver  foremen  and  ,up or,  would  be  re^Iuri;,  "'"''■'■''  '"  """'  """ 

which  wo„l<l  have  ^,  ho  r;      "  ""■""'''  "'™lifi^.-»i"ns 
The  su,,.s,  on,  :1  ,."'';"  '".  ^"''""•--  -'^  '-  ProteCe-l. 


.;,.,  BR.r.SU    ..A.«.«    O.Nn.TIUNS    AN.>    LKr.lSLAT.ON 

,  ,  ,  ,  rrv  ini  o,lln  livf  lar;;iiiniiiK-     I'""'  ''"•■  "^'"- 

2.    Naliiiiial  a^SMciall"n*  ..f  I'.icli  ira<lc. 
;i     l..)cal  ii.li-raii.insof  tra<lc^.. 

revolutionary  HiO'  «o»l<l  '«  ^voi.lc.l. 

Tkake  Union  Ackkemknt 
1,  was  stated  above  that  the  views  concerning  the  reorfani- 

of  industrial  unrest,  was  the  first  to   "Rfc  informed, 

of  the  program  we  •'-^j"^^  ;;      ;'  f  Birn  ingl--  -s  the 
S:::  ^r  :fc— er-seln.  to  have  ..en  mamly 

S«t :::.':the  years  antedat.ng  the  war,  another 

iKirkaldy.  of.  fit...  PP.  47-50. 
2  !bid.,  preface,  p.  iv 


'■•"""■STRIAL    H.O..VS,K,,ri„ 


"■»'  -  ».ll  pr..|„.n.,|  ,„„„„,|.^     ^M-r.-.s,-,   I,  ,h,  o,,,,,,,,,,....  .,r 

MrH:::r',::::,:r  :;;->■ '■•r'^'^-i-n:;:™''- "- 

■;'  .he  -I  ran.,,„rt  UWker  '  iJl.l.i  ,  "'"'  " ''"  '"'  •'^-"'^■»> 
,"-  ''".-I.  .\,s„,i„„„„  ,  ■,  „  i  '  ;V":''-''  ""■  -"I"-  „f 
'•^-  -'IHT   i,nl.,|,.,   „,,   „,,;"     ';^  ""  '"''"^'nal  rnrc,,.  wl.c-re 

-f  "-e  working  „,«„  in  ,he  f.Wl.'.tin,,  Clh'"'""  '"  ""^  '""«"'«^ 

' ;,' "7 '." ■«  ".v  ..imi„i„; ;;:  ™";  ;■• »«'« -  p-  .heir  "„  : 

tcho,,,     ,;","""  '""  """"  "-  c„,„li,io*       „  Z:^""  ""'  ""'"-K  live,, 
noiir,  „(  l,r„„„„„^  j,,^  in  which  we  have  l„  work    („ 

»n1  cvc,  ,„  ,he  manner,  and  „r cice    „f    L     f  '""''"'""'  "'  '"-""or.l,^" 
of  democracy..  ">^  '""™  "•'ii...r.al  peace  excep,  on  ,he  line, 

Kathennp,  of  ,he  I.-,I«nn/da    e'  ''''':"""''""  ^-V  "'■•tional 

"Repor,  „f  Proceeding  „f ,.,   '^    '\""^"''  «^v„lent  from  the  fact 


27S  BRITISH   LABOR  CONDITIONS  AND   LEGISLATION 

that  we  find  n<,  mention  of  any  such  a  plan  in  the  after  the  war 
resolutions  adopted  at  the  Manchester  con.erence  ot  the  Labor 
partv  in  January,  1»17,  which  resolutions  were  subsequent  y 
pr  ented  to  the  Prime  Minister,  as  already  noted  The  only 
re  erence  to  the  control  of  industry  in  these  resolutions  has 
reference  to  industries  which  have  been  or  may  be  nationalized. 
The  resolution  .lealing  with  this  matter  states  that  no  schemes 
for  the  nationalization  of  industry  can  be  accepted  as  satisfac- 
tory which  do  not  provide  for  their  effecMve  control  by  the 
workers  in  those  industries."  '  ,  •  ,    .     u  „i,,„ 

Other  discussions  of  after  the  war  problems  which  took  place 
about  this  time  show  that  the  idea  of  a  fundamental  chanRe  m 
the  relations  tetween  employers  and  employed  had  not  yet  taken 
possession  of  the  min.ls  of  either  group  in  such  a  way  as  to  lead 
to  a  definite  formulation  of  a  program  for  the  democratic  control 
of  industry.    In  January,  1!)17,  a  conference  was  held  in  London 
between  representatives  of  capital  and  labor  which  was  pr  .ded 
over  by  the  Right  Hon.  Frederick  Huth  Jackson.  Pres  dent  of 
the  Hankers'  Institute,  to  consider  after  the  war  problems    at 
which  it  was  agreed  tiiat  Parliament  should  be  urged  to  estab- 
lish a  board  whose  functions  it  should  be  "  to  regulate  and  super- 
vise (a)  the  reinstatement  in  civil  employment  of  the  present 
forces-    (b)   the  settlement  in  normal  employment  of  civilian 
workers  now  in  government  or  controlled  estal>lishments;^(c) 
any  general  redistribution  of  labor  arising  out  of  the  war       It 
is  at  once  obvious  that  these  resolutions,  deabng  only  with  the 
subjects  of  demobilization  and  the  redistribution  of  labor,  are 

,  D        .     (  il,,  Sivteerth  Annual  Conference  of  the  Labor  Parly.  »18. 
„    I2I'   Th     execu^^e  commnlcc  of  the  Labor  parly  >"  l".=f "''",?  ''^J^; 

construelion  £"'^.'^i"';  "/,'';'//;„,„  C.a.  of  Labor  SIclistia.  March. 
2\fo»thly   Review  of   L'nuea  oraicj  i^H'tu-   w, 

1917,  p.  47^. 


™«'ST«,..    RECO«.,T«LCT,O.V 


much  narrower  in  scope  than  ,h.  ^'^ 

Association  commi.tee  Z7  f^7f~"'"'»<la,ions  of  the  British 
pvernmen,  to  set  forth  a  „  ^'""^  ^''^^  influenced   tt 

■ndustr,.    They^a/h    ,e  Jertfr   '^  '"'  ^-^-iza    '„  o 

pnortTrr""'"""™"'"""'"- 

of  rernsTruttioS^'ren^ia.:  fw^^T'  I'J"™"'^'"'  '"'  -'^Jec. 

"-ho  were  members  of  the  rtf  ^  M'nisters  of  the  rro„n 

mittee.    After  ,t,.  Cabinet— the  so-calleH  r=K  " 

contin.  ^.     or  a  ,  r"  ^r'"""'"'  -''  office  ^,'t,'"''"  ^°'"- 

^"m      tee  on  Relations  between  f1,  °"'  '"""'  ""^  Sub- 

Jh's  subcommittee  was  asl<ed:  '■  "  ""^  Chairman. 

jS  H2~  S£-"=- " -=^^  -'-•■  --"■ 

This  committee  issueri  an  ,„.    • 

of  how  to  s;cr"  'era:e':r-'"''™'^^"''''''^P-Mem 
^'"P'oyers  and  emplovedTn  1  ^  ""P™^-"'  ^^''"ons  Lween 
;n  which  there  exi.ft  repre    n,    ,"":  '""""''^-^  "<  '"^  -""'" 

had  been  forced  to  a  temporary  reor^l''*™"'  '^^en  industry 
-h'ch  wonW  in  tnrn  necessitate  anXr'"r''' "^^  "'^"^  "-ds" 

■•^adjustment  when  the 


■■■a 

I 


Ik- 


m 


280  BHITISH    LABOR   CONDITIONS   AND   LEGISLATION 

'°°''rtT;Cur:K  c  "u'e  but  should ,.  .r..,^- 

''™f  ^t  conle  ^'''  ""'  hesitate  to  express  the  opinion 
that     any  proposals  put  lorw  employment  and  a 

™eans  of  attaining  improved  '°"'^^'™7/;7,  ^L  enlistment 

industry.       In  order  to  prov  .„nioved    the    committee 

operation   between    employers    and   j:2^yf  ^^hout 

recommended  that  the  government      f  °"  ^  PJ^^  ,       i  the 

:rri::'ir-n^-eai,e.i..^o.d<,^^^ 
—-^ir^rri^di^trrrLci^^sonabor 

^"Slig  the  matters  to  which  f^^^^^^^^^Z 
early  attention  are  q"«"°"\°*„„',trS  o"  employers  to 
government  guarantee  and  the  ""''"^'"^      ^^^j  ,„ring  the 

Ltore  ^i;^-^^::::t:T:L::^::t..  >«  \.. 

rat^s^mWes  rwel.  as  '^'^y^^^ftZtZ^X 
the  old  rules  and  customs  "Stored  but 't  ^-fj^;        ,J,,„,e 

:7:fr:s';rt:::^^^-Ti^^--— -^ 

the  districts,  and  nationally.    A"  three^org  ^^^_ 

,.,  That  .i«Hc.  councns.  rcpr«^.i«J>.  rt.-^  ™>-^  ::  ^^ 
trmdes. 


INDL'STRIAI.    RECONSTRUCTION  281 

(b)  That  works  committer.  re„rcsem»ivc  of  the  management  and  of  ,hc 
workers  employed,  should  be  instituted  in  particular  Irks  to  ac 
m  close  cooperation  with  the  district  and  national  machinery 

The  design  for  these  committees  shoul.l  be  a  matter  for  agree- 
ment  between  the  trade  unions  and  the  employers'  association,  in 
each  tndustry,  for  only  in  this  way  could  their  support  for  such  a 
schet^e  be  secured.  "The  object  is  to  secure  cooperation  by 
gran  ,ng  to  work  people  a  greater  share  in  the  consideration  ol 
matters  aflfecttng  thetr  industry  and  this  can  only  be  achieved 

,^1'?'"^,*'"'''°^'"  ='"''  """■''  P™P'«  '"  <:°nstant  touch  " 
Whtle  admitting  that  the  respective  functions  of  works  com- 
mtttees,  dtstrict  councils  and  the  national  councils  would  have  to 
be  detertntned  >n  accordance  with  conditions  which  had  grown 
up  m  each  ■ndustry  the  committee  made  mention  of  the  follow- 
ing questions  whtch,  ,t  thought,  might  well  be  dealt  with  by  the 
nattonal  council  or  be  allocated  by  it  to  the  district  councils  or 
works  committees:  '■"'•".•i^  or 

wo'k^eMe""  """""""  °'  ""  '""■="'  '™°"'^''«'  -"  "P-=--e  of  the 

creVprpeHt^ofr  ii^',;"™''  -  "-=  -'  --^  ^  ^^-^  ^"  »■=  i-- 

whicharealreadrcZredby  ^.r^aphJ.    ^'"^  "'  "'"""  "'"'"'  "'"• 

7.  Technical  education  and  training 

8.  rndustrial  research  and  the  full  utilization  of  its  results 


ill 


282  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

10.  Improvtme.,ts  of  proc«s«,  machinery  ar.,1  org..,iz...on  »"«  .ppro- 
prUt.  questions  relating  to  management  and  the  exam.nat.on  of  .ntotnal 
ex«ri.nents  w.th  special  reference  to  cooperation  m  carrynig  new  .dea  mto 
eff«  TndfuH  consWeration  of  the  «ork  peoples  point  of  v,ew  .n  rela.ton 

to  them.  .... 

U.  Proposed  legislation  affecting  the  mdustry. 

A  careful  comparison  between  this  plan  for  industrial  councils 
and  the  plan  for  industrial  organization  presented  in  HUB  by  the 
committee  of  the  British  Association  for  the  Advancement  of 
Science  will  show  that  they  are,  in  essentials,  the  same  plan.  1  ne 
Whitley  report  makes  the  plan  somewhat  more  definite  than  that 
set  forth  by  the  British  Association  committee,  but  the  general 
resemblance  between  the  two  programs  can  not  help  but  cause 
speculation  as  to  whether  or  not  they  did  not  have  a  common 
origin  in  the  brain  of  some  one  individual. 

The  ^Vhitley  report  urges  the  governmem  to  put  the  proposals 
male  by  the  committee  before  the  employers'  and  work  people  s 
associations  in  the  well  organized  trades  and  to  request  them  to 
adopt  the  proposals  with  the  aid  of  such  assistance  as  the  govern- 
ment can  give  while  it  acts  only  in  an  advisory  capacity,      lo 
those  persons  who  feared  that  the  combination  of  employers  and 
employes  through  the  medium  of  these  industrial  councils  might 
lead  to  the  sacrifice  of  the  interests  of  the  community,  the  com- 
mittee expressed  the  opinion  that  the  councils  would  have  regard 
for  the  national  interest.  If  they  did  not,  the  state,  which     never 
parts  with  its  inherent  overriding  power,"  could  intervene      Ihe 
committee  repeated  its  statement  that  the  plan  presented  was 
only  intended   for  "  industries  in  which  there  are  responsible 
associations  of  employers  and  work  people  which  can  claun  to 
be   fairlv  representative."      A   later  report  was  promised    for 
trades  n'ct  so  well  organized,  but  the  committee  gave  it  as  its 
considered  opinion  "  that  an  essential  condition  of  securing  a 
permanent  improvement  in  the  relations  between  employers  and 
employed  is  that  there  should  be  adequate  orgamzation  on  the 
part  of  both  employers  and  work  people." 


:i 


INDUSTRIAL   RECONSTRUCTION 

Discussion  of  the  Whitley  Report 


283 


if  adopted,  would  chanrfrnT  „  ™'™n'endations  which, 

"f  'he  wage  sy,  em  The  ren  7™/"  '  ""'  "^""'''"^  '^''-''^'" 
March.  liMT  iTwal  no,  '  ,  T  '""""'"^^  ""'^  ">■■"'-  i" 
•Meanwhile,  he  eU,  comL""  "'"''"  '"""  "™"'  "'°""^^- 
causes  of  and  rem  dies  fr^rT'.'P''"'"'"'  '"  ™"^'"-  'he 
and  had  hegunTf;!^,^  Th^Xu'  ''•^™  ■^'""■'""' 
parties  which  appeared  I«fore  themTh  '  '"'•'"■■''  "^  "'« 

vah.e  of  the  reclmenda  Ln    oUhXIT'""  '""'""'"'  ""= 
desirahility  of  puttine  the  nl,n    .,  ^  committee  and  the 

The.i,ht^Hon''Geory'M.tr„t^rZrdr"''""°"- 
"f  'he  reports  of  the  commissions    said  that  ,h  '"""""^ 

commissions  bore  "a  stril<in„  V,  .  '''''"''''  "'  'h--- 

prop,>salsmadeintherel,oi;h:  7"'  '"  "'  "''"^  "'  "^^ 
struction  Committee  delCwtth"?"""""^'  "'  "'^  '<-""" 
employed."  and  tha  '  "Iroadirsn  J-  T"'  "'  ^"""'"'^  '">'' 
appear  .„  ,„.  met  with^^i^var  ."^^""'"^■^  '^^'^  "- 

posalsof  the  Reconstruc:L'c„mm're"'  "^'""^"  "  '"^  P™' 
'he  e'ltXhlTnTr/'r  ct^tt'''^  commissioners  advocate 
to  confer  with  representat  veTo  T  T"""'  ""^  ™-  -^ 
c-sion  of  nuestions  a^^X'  l^L.^s'T^^^^  "  '"'  '"^  bi- 
shops." They  express  themse  es  as  ••  h''  ""'m"'"  ''"  '"^ 
w.th  the  underlying  principL,  "  of  >,!  "'"'™«'''>-  '"  accord 
'ion  Committee'on'i!;du.:.riaUo:  ^ns  'TT'  '"^  '^'■'""""- 

";P-cya.ecti„gthereS::!f1r"^^--~ 
D.pa;t:'„Tof'iX'"BS«i„2tp;,i""""'  °'  ^^-^^  Statistic,  of  U.  S. 


284  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

considerable  cUnge.  that  the  settnig  up  of  ^^J^^^^ 
impair  .he  usefulness  of  that  wh.ch  now  ''""^-       ''    ^^^ 

which  involve  loss  to  others.       /!^  ^  ^'^^;,7„^  Jconmnttee 

mmmm 

more  tuuy,  .ei        f        i;      n-inciole   which  seems  to  us  to  be 

::nu:ur/fisculsed  before  that  for  district  councils  is  taken  up. 

„„i„„a.  industrial  councj^»  are  «oJ  ""J'^-^^l^i..^  i.  ano.her  thing 
the  House  of   Lords,  but  the  shop  o  ^_^^^  ^j_^^  ^^^^  ^„. 

altogether,  and  this  w'*'"";  ^''°"'„e  ,o*e  working  man.    We  kno«  this 
deavor  is  made  to  explam  the  f^l'°J^;jlTXmc  in  the  "order  of 

^-g^i'Sr  »- "o"---'"-  --"'-•'-  ^°"™"- 
•/«d«(r,oJ  t;»r«l  in  Grca,  Br,law.  loc.  .it.,  PP.  28-29. 
'  Ibid.,  p.  55. 
>/f>i<l. 


INDUSTRUr.    RECONSTRUCTION 


S8S 


we  b.g.n  ,„  dc,cnbe      e      H^t     urtrinl'  f    '  '^  "■     "'"  *"'" 

councils,  ht  got  .  real  sril  of  U„  ■;?"''  '"''   '""">    "'"-"•I 

.hink  there  was  a  lot! ,  ?t   an^  ,h=,^   .         *"'  ""'"'  '''"'■  """  """">  •" 

oe  part  and  parcel  of  industrial  coiilrol.i 
The  commissioners  discuss  briefly  the  question  of  the  restorv 

^rd^tTnVhrle'tlTr^:''""'"^"'^  ^-'"'-  "^  "  ^'P' '"  '"e  spirit 


wo^i?;'„^\r:a?ea''rn:''a"t.'„";.t":f''"'  ''^  ™'  ^"-  °'  '"^  ""' 
far  better  thing.  As  a  modern  socia  foil  'Jr^s-  •■  W  "'"""  '!",'  "  '"' 
to  a  higher  level,  and  while  the  keenness^f  oMr  fff  """.'  ''''  '^'"•' 

of  our  exaltatio..  arc  sl.II  w,th  us  ,hr,!  «"«fcr,n«  and  the  height 

arc  waiting  f„r  he  hi   1™:!'  '"»"/'"""  "^"^i'"''  >"<!  what  they 

■hat  this  is'what  th  governLn.  i  rr  t,  """""""  '■■""'  ""  ''™'"-"" 
nation  at  their  back.    We  h've  b    „  fa  '        f     '  °"L  "'"^  ""  '"'*"  "'  "-^ 

"ar;^  i^c^^sri  ?■' -  "f  ~  "r 'ir;:^: 

-  ...  in  hringi ---X— •  -  -^arer-^^  c™ 

D,W.,<,„  .J-r<,r*^/„>.  a„d  East  Midlands  Area.  The  com- 
mtsstoners  ,n  thts  area  do  not  refer  directly  to  the  propo  a  s  of 
th  Reeonstructton  Committee,  but  they  doubtless  have  ,1  em  in 
mtt^d  when  they  say  that  many  of  the  men  have  expressed  a 

some  .>. stem  for  the  betterment  of  the  industry  ano  when  they 
urpe  the  tmmedtate  introduction  and  settins  up  of  workshop 
committees,  composed  of  en„al  numbers  of  workers  and  oT  he 
mana,e,nent,  the  workers  bein,  elected  by  those  emplo^^d  in 
each   works    for  the  consideration  of  questions  affecting  t 

'ibtd     ir     "■  ""■■  '"■  "'■'  f-  ^- 


■  I  („r  reference  of  matters  which 
industry."  They  aUo  P-"^  ^  ^^J,'  ^^  ,i„Hc.  councils  and  if 
can  not  be  settled  by  1°"> /'f  "^^^  area  the  plan  of  a  "  shop 
need  be  to  national  """= '^.,  '~,„,,  .vith  shop  stewards 
committee,"  or  rank  =>"''  ""."J .ready  developed  in  the 
electedbythesvor  ersm   ahslop,ha^^^__^^^^  ^^^^^  ^^^^^ 

enginecrmg  mdustr     and    he  „,„„„nen.lat.ons  o 

view  this  movement  with    ='^"'  »  ^.^„,  „,,  extension  and 

,  ,.Wshop  committees  -^  "I  e  of    rg--''""' 

further  development  o    this  mode  o       t,  ^„„,„,i,,i„ners  m 

pirision    ',-n-cst   MnU.mU   -^^   '  „;  ,,,,,,  among 

0,is  area  state  that  there  was  a  ^^^n^^co  .^,^^^     ^  __^^^  j^,, 

.vitnesses  as  to  the  des.rabd  t>  -}^^  ^        ■,  authority 

that  both  the  trade  union  ''"''^""'>_!";' '^'  The  commissioners 
Uuld  be  weakened  1^-  -  J^:  "^^ j  ,hat  "the  weight  of 
made  no  recommendations.  ''"    ">"  ••     „„  ,l,e  other 

evidence  on  both  sides  -  ='g;-\^'^  ^^^^.^^ers  and  emy.loyed 

-":!t;:rc::c::r- ----«■• «' '"  "'""^ 

report  they  had  this  to  say. 

We  are  also  impressed 
We  express  a  general  'PP'";""'  °'„  *,"  JJ«  meetings  between  men  and 

"aSt'i^^.d?^:^:5i-i:— ^^^ 

;^:^  t::::a;r^°H;t:U  under  w.icH..,e.  «- 

specific  reference  to  the  Wh      >    jj   ^  ^,,„,„,  move- 

this  area,  though  ^^^if^.^^"^^^,,  to  revolutionary  acivit.es 

=  /bid.,  pp.,!^?'  *'■ 

3  llnd..  P-  Wl. 
*lbid..  p.  111. 


INDI-STRIAL    RECONSTKICTIOS 


287 


Difision  O—SoulhursI  Area.  The  cc.mniUsioners  in  this 
area  content  themselves  with  stating  that ;  "  The  general  princi- 
ple i.f  the  Whitley  report,  which  we  endorse,  is  acceptable  to 
i-iiplo..  ;rs  anil  workers,"  and  with  a  commendation  of  the  Min- 
istry of  Munitions  for  estaWishinj;  workshop  committees  on  the 
lines  recommended  in  the  Whitley  report  in  munition  factories. 
They  recommended  that  the  same  steps  he  ta;(en  in  the  Admiralty 
dockyards,  the  railway  shops,  and  where  possible  in  all  con- 
trolled estalilisliincnis.  District  councils  in  the  munitions  areas 
are  also  recommended." 

Dk-ision  J—II'ales  ami  Moiiiiwulluhirc.  The  commissioners 
for  this  area  discuss  at  much  length  the  proi)osals  of  the  Whitley 
committee,  the  "  main  principles  "  of  which  they  "  pladly  adopt." 
They  say  that  they  had  invited  opinions  from  witnes.ses  in 
repard  to  these  propc  sals  and  "  quite  a  large  number  "  of  them, 
representing  both  employers  and  employed.  "  declared  themselves 
m  favor  of  the  principles  underlying  the  recommendations." 
The  representatives  of  Ijoth  the  .\orth  Wales  Coal  Owners 
.\ssociation  and  of  the  South  Wales  Coal  Owners  .Association, 
so  far  as  they  had  had  opportunity  to  discuss  the  matter,  favored 
the  pl-in  of  industrial  councils  and  even  regarded  it  as  essential 
that  some  e.\pc-iment  on  the  lines  of  the  Whitley  report  be  tried. 
Although  the  South  Wales  Miners'  Federation  had  not  yet  sent 
ill  an  expression  of  opinion  in  regard  to  the  proposals,  resolu- 
tions from  the  South  Wales  Branch  of  the  National  .Association 
of  Colliery  Managers  were  received,  which,  while  throwing  some 
doubt  on  the  practicability  of  some  of  the  proposals,  expressed 
the  opinion  that  the  joim  councils  were  the  tost  means  of  secur- 
ing better  relations  between  employers  and  employed  and  called 
attention  to  the  fact  that  the  coal  mining  industry  was  already 
so  highly  organized  that  the  machinery  for  working  of  the  joint 
scheme  could  easily  be  set  up. 

There  was.  said  the  commissioners.  "  one  striking  exception  " 

to  the  general  endorsement  of  the  proposals  of  the  Whitley 

report.    The  owner  of  a  large  steel  and  tin  plate  works  expressed 

the  opinion  that  the  industrial  councils  would  be  used  as  a  means 

"  Industrial  Unrest,  toe.  cit.,  p.   121. 


;.  nrobtbly  govtrned  too  tanely 

ticalar  indu.trj.'  ^^^^ 

The  con,n,...ners  are  parua,..|^y  'J^^  f  i:;;:,,e   of 

D,V«.<-«  H^Scotla"d^  Jhe  c^T  ,  ,^^^„„,,,„,,i„n  Corn- 
deal  very  briefly  -'\''^' fj-'^rn  suggested  "met  with  genera 
„ittee,  but  .hey  say  '"»' '^'^"fons  represented  had  had 
approval."     "  Kone  of  the  orgamza  .^  .^^^  ^.^^^^^^^ 

til  to  sttuly  it  minutely  or  «  ~";";„,i^e  of  the  report  of  tne 
fitting  themselves  to  ^  ^    ";•  f  Xably  received."  '     . 
Reconstruction  Comrut  ee  was    av         y  ,„„n,Us.ons  on 

The  Ministry  of  L"^-' .^^^      , tncerning  the  attitude  of 
industrial  unrest  ^-'"^'^^^^ZZi^  ,he  proposals  of  the  Corn- 
employers  and  vvorkmg  .n  n  tja  ^^^^^^^^  ^  c.rcular  let- 
J.ee  on  Kcconstruct.on  .n  .1ul>    1       .  ^^^j^  „„,„ns 
r;:  to  the  prindp^l  employers  ^^^^^^  •„  ,He  Whitley 
asking  for  ^^e-  v,ews  on          1>    P     ^^  ^^^^  ^^^^.^^  ^ad  been 
report,     m  Octol«r  the  M m  st                       „,ganiza,.ons  and 
received  from  a  large  """'>^J  "^^^^'  5,,„re,l  the  adopt.on  of 
,.,e  unions  ^^1^1  -■>->-  °^  '^^  ""''"  '^'  "' 


i..si 


INDISTKIAI,    HtCllNSTRlCTION- 


far,  as  is  here  kihum,  \Km  piiblislie.l,  vari. 
opinion  by  employers  and  lal 


liHtt 

Ills  exprissiois  of 
...       ,-      .  :     -     "■  "ruanizalions  have  iH'en  made 

»oul,l  Renera  ly  approve  .he  uiulerlyinK  pr.nnples  of  ,he  plan 
since  ,hey  call  for  a  mncl,  larger  participation  i.'v  |..,,»,r  i„  i,,',!".' 
tnal  manaKenient  than  empl„yers  have  usnallv' l.eeii  williiip  ,„ 
concede.  What  ,.,  most  siirprisinR  is  the  co,  '  i  rea-p.i..„  which 
the  plan  seems  generally  to  have  receive.l  from  empl„^er. 

Ihe  Federation  „f  British  Indnstnes.  me.tin,.  i„  „k,  „™n,e, 
of  1.11..  after  givmR  full  consi.leratinn  to  the  Whitlev  rei,..rl 
gave  Its  approval  ,„  ,1,.  plan.  [,  is  w„r.h.  of  nnte'th.-.t  ,|,J 
federation  expr  ,.d  ,he  opinion  that  in  order  to  in.sure  efficient 
production  altvr  the  war  it  will  be  necessary  to  have  the  coopera- 
tion of  labor,  and  that  laborers  will  have  the  ri^h.  to  demnml 
improved  comlitions  of  employment,  a  higher  standard  „,  con,- 
fort  and  an  opportunity  to  appreciate  the  true  interests  „f  the 
tratle  in  which  they  are  engage,!.  The  federation  beliexes  the 
beot  results  of  such  cooperation  can  onlv  be  secured  when  com- 
plete organizations  of  employers  as  well  as  empluve.  esi-t  in 
each  tra.le.  If  a,,v  considerable  number  of  either  empl„vers  or 
employes  ren,ain  outside  their  respective  organiza.ions:  it 
becomes  almost  impossible  to  have  securitv  for  agreements 
arrived  at.  The  federation  consid.-rs  this  point  so  fniportant 
that  It  lavors  government  recognition  and  standing  of  organiza- 
tions of  employers  and  work  people,  but  it  desires  no  interference 
by  the  government  in  the  creation  of  the  proposed  organization 

In  the  constitution  of  the  national  industrial  councils  the  fe.ler- 
ation  favors  centralization  of  policy  an,l  decentralization  of 
administration.  The  basis  of  the  scheme  should  be  the  trade 
councils  of  employers  and  employes,  that  is.  each  trade  or  section 
of  ..n  industry  shouhl  form  a  council  representative  of  the 
employers  organiz.-,tion  and  of  the  trade  or  .section  of  an  indu- 
try.  District  councils,  it  believes,  will  be  chieflv  useful  in  .acting 
as  a  court  of  arbitration  in  the  case  of  any  industrial  depute  in 
he  trade  in  the  district  which  arises  out  of  the  conditions  peculiar 
to  that  nistrict. 

The  federation  thinks  the  works  committees  should  be  entirely 


..UO  «H1T.:*II    I..M...K   CONU.T.ONS    AM.    l.Mi.SUAT.t.N 

v„Umtarv  in  .h«  c:s.  „f  .ach  indivi.lual  .,rn,,  and  n,  t  in  any  way 
rtcX  c..n,.itul..l.  Ih^  funcli.,n»  ..(  ih.sc  o.mm,t.c«  .t 
S  ,h  II  W  limi.c>l  ..,  r.,,..r,inK  <-,,  ur  receiving  .r„m,  .he 
„.m.n.  c„n,„laM„s  KKar.lin,-  l.r.ach..  ,.f  any  aK«cment^ 
XhZ  have  iLcn  ma,!,  l^.wccn  ,h.  .n„.loycrs  and  th.  «ork 

*""';' "nav  1..  sai.1  a.  un«  .ha.  any  such  hmi.cd  «o,K  of  th. 
..rk  .,.-.he  works  c..n,n,i..ees  woul.l  U-  .ar  from  ,n«.  K  h 
wishes  o(  llK.  m.resen.a.iv.s  of  the  worlonn  classes  «ho  h  ve 
:,  .  .hemselves  in  .his  plan.  Their  chief  -n.eres.  ,n  h. 
XL  eon,es  fron,  .he  i>ron,ise  .ha.  .hro„«h  .hese  workshop 
omm  ..  es  lal  r  can  share  in  .he  manaKen.en.  of  n-h.s.ry,  n,  so 
ar  r.he  rek,        ~  l-.ween  lahor  and  nunuKCUen.  are  concerned. 

rv  anl     ro  vn.nK  .he  en.ire  schen.e.  a  national  n.dns.r.al  cou,^- 
:^|.  :::,;;  of  r^pre.n.a.ives  of  .l,nd....s.^^J^^^^ 

:;:r-r:;::;:'::ir;rr:::::;:::f-^"-i,s 

ml  1  no"  a>;ree.    The  federa.u.n  also  heheves  .ha.  so.ne  of  .h. 

:    i^  ;;^.l.  wi.h  m  .he  U'hi.ley  re.,r.  ^^onM  '- -ns,dc.«^ 

f,  St  of  all    l.y  .he  national  in.lustrial  council  and  tha.  .he  tmal 

L:^, In  a^l  ma..er-  of  general  p-^icy  sh^ld  res.  w,.h  .  e 

same  lK,dy  af.er  „p„.  .unities  f.,r  cn.,c,sm  had  U.en  gnen  .o 

the  counr'.s  of  indus.rs  and  the  trade  councils. 

1  u",rse  he  fel.hy  .he  reader  r.  .he  ap,.arently  cord 
sunU"  which  British  eniployers  have  Riven  .o  the  repor  of 
r*^  oL-ruCion  Ctnmittee.  which  implies  such  .ar  reac  un, 
lonseuuences  in  he  reiu.ions  l^.ween  employers  and  emplovcs. 
Tr,  Jex  .lana.ion  'or  .his  l,lK..ral  at.itude  of  employers  may 
beCnd  n  h'^ear  .hich  has  apparen.ly  developed  durmg  .he 
«a  of  e  ".ended  governmen.  ownership  and  mana.emcn.  of 
mdust    unless  some  plan  for  con.inued  private  ownership  he 


INDL'STKIAL    IIIC0N»T«ICT10.V  Oj)] 

i.l..,,i„|  which  shall  I*  mutually  «ti,facl.,r)  t„  capital  ami  lal^r 
In  the  alKivr  account  of  the  siiRKcstions  nITtrc.l  l.v  the  l!rti„h 
■•deration  of  Inclmtries.  it  will  I*  remeniUrcl  that  the  view 
was  .,tr,>nKly  urge.!  that  there  shouM  !«•  Kovernnie.,1  recoKnilion 
of  orKanizations  of  employer*  an.l  w..rk  [>eo,,le,  l,ul  n.,  inter- 
ference with  their  plan  of  o«.p>rali..n.  Tlii,  is  only  „„e  hint 
of  an  iimUrlyinK  feeliuK  on  the  part  of  emplovern  which  liniN 
more  complete  expression  in  „  Ita.liiiK  article  in  77i,'  llamomUl 
of  Decemher  1,  HM".  This  journal,  it  will  be  recoKnizeil  is 
peculiarly  the  representative  of  the  financial  an.l  commercial 
classes  m  Great  Britain  an<l  therefore  may  he  expected  to  voice 
the  conservative  ,»,int  of  view.  After  givinK  its  en.lorsement 
to  the  principle  of  the  Whitley  rei«,r;.  this  article  proceeds  to 
contrast  the  workings  of  such  a  scheme  for  the  reorganization 
of  industry  with  those  which  it  kdieves  to  he  inherent  in  any 
system  of  government  ownership  an.l  management,  which  latter 
plan  It  conilemns  in  the  following  words: 

Out  of  .11  ihi>  cla.h  l«tw«„  8ov.rnm,nl  dep.rlrae„t.  on  ih,  „ne  h.nd 
.nd  of  mploytr.  .„d  work-r.n  „„  ,h,  „,her,  m„ch  good  will  .ri,c.  ,hou,h 

,117    V"m  7'"  '"""   '"'  "■    '"  ""  ""•""  "'""  •><  '"'Ploy"' 
..       vorkmci,  of  .11  cl...«  „  growinn  «,,  .  profumid  dislike  of  all  b„v. 

It  .t  the  first  oppor.un,.y.  VV.  h.v.  .11  h.d  .  painful  l.s,„„  i„  sfalc  s«ia°- 
..n,  and  It  ,.,nl..  ra  our  noril..  The  old  d.ni.nd  of  ,ocialis,  „ra,or,  ihat 
i/.rT."""!,  ,°  "'""""I'"  "■"■  «"'  ""<!  th.  o,h.r  i,  moribund,  if  no. 
dead.  What  all  c  .„«  „„„  warn,  and  wan.  ,o  badly  ,hal  .heir  hear!,  -ch. 
for  ,.„  l„  complete  Ihr  war  in  a  manner  «.i,faclory  .o  .he  Allie,  and  lo 
get  nd  of  .he  governmen.  con.rol  of  industry.  Bo.h  emplovers  an,l  »„rl<- 
men  wan.  .o  Iry  a  new  ,y«en,  of  self-governmen,,  and  .o  evolve  a  me.hod 
of  workmg  which  w,l  give  .o  all  producer,  a  harmony  „,  i„,ere,.,  x„'hir^ 
hai  ,o  greatly  stimulated  this  common  desire  for  c<«>peration  a,  ,he  ex^ 
^rr  °,  T  ■'"  T''y  «'"""""•  ""'"I  -t-'ring  Ihe  pa,,  .wo  year,, 
^LTZ'  "i'."",  "/  '""  ""  "•""  '•"»'"-"•"•  commissions  and  com: 
men  who  .""■'i'."'  """">■  '°'  ""  '■^'""'""■'^  "<  '"""><■  "nhapp, 
men  who  understand  the.r  work  and  wan.  to  he  allowed  lo  gel  on  wi.h  it 
When  .he  war  end,  there  will  he  a  reac.ion  .owards  independence  from 
contro  which  may  carry  u,  loo  far  in  the  opposite  direc.ion.  but  it  will  b. 
as  healthy  as  tlie  present  system  is  unhealthy. 


Expression  of  opinions  «^-'"''^*;j;|;;"ndls°ha^ 
struction's  plan  for    -"Y'-'''"^,  -^us  r    ^^^^,^^^^  ^^  ^^^^ 

so  general  that  by  0«°''"/"'  \v;r'  Cabinet  had  -lecided  to 
was  rc.dy  to  »"""""«,*='!, ''^..'yLpolicv  which  they  hope 
adopt  the  Whitley  repor  as  P  rt  "  J.^^^^^^^-^,  .econstvuc- 
to  see  carried  mo  ^'  «'  "  '^^^  ™,  ,„  attempt  to  quiet  certam 
tion."    The  Mm.ster  felt  it  ""'^  .^''^  ons  «ho  had 

fears  which  had  been  -P^^  ^,  '  ^.  "X  government  felt  it 
examined  the  report  and  t"  »P^a  "  «>,  t  g  ^^  ^^^  ^^^^.^^^ 
desirable  that  empV^  ers  ='"'1  em 'lo>  es  .  h  ,^^  ^^^  ^^^  ^^^^^ 
operation  in  the  v  ^^  ^  ;„!"  said:  (D  That  this  plan 
which  had  been  exp"  se.l.  the  Mmist  .^j^^;^^„,e  in  mdus- 

.Ud  not  contemplate  any  e';''"^'""  °  ^^^  „f  ^he  councils  must  be 
t„  "  The  formation  and  '=°"^"'""2 mselves  "  When  formed 
Sncipally  the  worU  of  the  -"^--^  f ^^tine  their  own  func- 
^hey  would  elect  thetr  own  "«  "  -^,  ■„„  „f  .he  plan  did  not 
tions  and  procedure     (2)  Th  P^  „„iification  to  each 

mean  that  ,t  should  be  ''PP^"^.  the  proposals  made  m  the 
industry.  "  Each  mdustry  -^^^'^^.^^  oln  needs."  In  some 
report  as  may  seem  most  ^""»ble  to  unnecessary, 

industries  works  comm.ttees  2t^"^^  to  district  councils 
In  some  industries  the  '""^"""^^^^^^^f  ,3,  That  "it  should 
might  be  more  important  '"  °  ^^.^  „,Ltrial  councils  is 
be  made  clear  t^at  representat.on  on  ^^^^.^^^  ^^^„^ 

intended  to  be  on  the  bas.s  of  ex.stmg    ,8         ^      ^^^  ,„„neds 

p,o,ers  and  7^^™-;::*    "r  semauon  to  any  new  bodies 
when   formed  m.ght  grant  re  ^.^^^  ^^  ^^^_^,^^  ^^ 

which  hadcome  ,no  ex   t  n  e  a^^_^^  ^^^  ^^^  .^^^„,^,  ,,  p„. 
representation.     {*)   '"at  «  ^ 

mote  compulsory  arbtratu,!.  ^^^  „  ^^^.^^^  ^^  ^^^  i„dus- 

The  reasons  why  tnc  „u-v 
M„au.rialRepor..o..heMinis..o.UW,No..,P..3. 


INDUSTRIAL   RECO.VSTRrCTIOX 


2m 


trial  councils  established  as  so„n  as  possihle  in  the  org^ni^ed 
trades,    the  Minister  gave  as  follows  : 

(1)  The  experience  of  the  war  had  shown  the  nee<l  f.,r  fre- 
quent consultation  between  the  government  and  the  chosen 
representatues  of  etnployers  and  workmen  in  the  indu.iric.  nio.i 
affected  hy  «ar  conditions,  and  it  was  desirable  t.,  have  cicarlv 
recognized  who  were  the  proper  and  <hily  constituted  parties  to 
consult.  The  problems  which  would  arise  during  the  periotl 
of  transition  and  reconstruction  would  be  no  less  diftlcult  ihan 
those  which  ha,l  arisen  during  the  war  and  the  government  would 
need  the  arlvice  of  the  industrial  authorities. 

There  arc  a  number  of  sueh  questions  on  which  the  8„veri,n,em  «,ll  ,„.H 
the  united  ,•,„,!  considered  opinion  of  each  large  in.„tr        ^  ,  L  1 

mob,l„a.ion   of   ,he    forces,   the  re,e,.lement   ,1   n^u    ,i  I  \  "     ers  ] 

.nd„s,r,e.,  ap„rcn„ceship    ,  especially  »he„  in.errnpied         „     '         ,'      "j,' 
training  and  cmploymen,  of  disabled  soldiers.and  the  control"  frar^.u-riall 

(2)  It  would  further  be  necessary  to  .insure  a  ,settlement  of 
the  more  permanent  questions  which  have  caused  differences 
between  employers  and  employetl  in  the  past,  on  such  a  basis 
as  to  prevent  the  occurrence  of  disputes  and  of  serious  stoppages 
■n  h  difficult  period  during  which  the  problems  just  refe  red  to 
W.1  have  to  be  solved."  The  Minister  stated  that  the  gover  - 
ment  desired  it  to  be  understood  that  "the  councils  will  be 
recognized  as  the  official  standing  consultative  committee,  to  the 
government  on  all  future  questions  affecting  the  industries  which 
they  represent."  and  he  closed  by  urging  that  the  representat  ve 
organizations  of  employers  and  employes  come  together  in  h 
organized  trades  and  prepare  for  the  reconstruction  period  by 
creating  these  councils,'  ^  ' 

The  Ministry  of  Reconstruction 
The  general  approval  which  the  report  of  the  Reconstruction 
Committee  received  was  doubtless  partly  responsible  fo  he 
de  jsion  of  the  government  to  organize  a  special  department  o 
deal  with  problems  bound  to  arise  and  t«  demand  urgent  atte  ! 
t.on  on  the  conclusion  of  peace.  On  August  21,  ,nn,  pTZ 
■Industrial  Reports  of  the  Ministry  of  Labor,  No,  1,  pp,  3.5. 


:i 


204  BRmSH   I-ABOR  CONDITIONS  AND   LEO.X.AT.ON 

•  •  A..  I'll 7  which,  With  a  View 
„ent  .nacd  "  the  New  ^"^^^'^'^  ^evebpment  after 
to  promoting  the  work  of  "'f^^  -.^.^  for  the  appoint- 
the  termination  of  the  present  «=';•  P™  ^^^  ^.^^  ,o  cease 
"•-  of  a  Min^-  of  He-  r—  Jhe^o  ^^^  ^^^^ 
to  exist  two  years  »"""'=  ^^^^  ,hown  by  quo..n<?  the 

assigned  to  the  new  Mm-''^    ^     ,  „f  ,y,,  ^ct  creating  the 
following  paragraph  from  Section 

ministry : 

advise  upon  Ihe  problems  which  '^;"'''°^,„,  ,he  purposes  aioresa.d  to 
■  hale  ,0  be  deal,  wi*  "'"V'LulrTes  prTpar  -ch  schemes,  and  make  such 
i„s„lute  and  conduct  such  '"f '  '"^f  ,;";  Mmister  of  Reconstruction  shall 
recommendations  as  he  thmks  «<■  JT  J^  ;,  ^^^  j„,i„  of  any  government 
,„r  the  purposes  »'°-»'"';'':;:;;;fberc„uferred  by  or  ..nder  any  st^u.e 
department  or  authortty,  «"''"^„, "authorise  the  Minister  to  exerc,  e  or 
-r^rm^t^rri^nrTc^nsu-ion  with,  the  government  depart- 
„,„,  or  authority  concerned.' 

Since  the  creation  of  the  new  n^istryO^su^^ 

relations  between  employers  --'[^'if^^'^ZL^,,  „„  the  Rela- 
Reconstruction  has  been  continued  as  he  Com  ^  ^^  ^^ 

tlons  between  ^-P^^^^r  I^n^^^^^ 

construction.  Dr.  Christopher  ^^  Reconstruction. 

of  Munitions,  was  appointed  as  t^^^^^^^  ^^^^  ^^  ,„ 

On  October  2+,  1^1  '■  *e  ne  ^^^^^^^  ^^^.^^  ^^^  „,^ 

which  he  set  forth  m  a  8^""™      ^j^  particular  the  unem- 
departnient  had  to  meet.    He  m  "tioned  in  p  ^^ 

ployment  problem,  the  ^^f'''""^^",,,,,:^  the  raw  materials 
L  close  of  the  war  among  the  nations  to  secu  ^^  ^^^ 

needed,  the  need  for  ^''P^^XeteTproductivity  which  could 
government  and  the  need  for  •";;;!'^^'  P  ^     i,,,  and  labor, 

'only  come  through  better  c-P—  ' -';«  ^  .^^^  industrial 
better  conditions  of  ''*;•  '''""^/^".if  „{  the  Whitley  report 
„,ethods.  He  »""^"'»^;' ''^X/to  get  together  and  "  form 
:::;rli^S"ett;::^:ofdiLeni."    TheMinister 

^Brilish  MusIrM  Experknc.  vol.   1,  p.  902. 


INDUSTRIAL    KECONSTHICTION 


295 


Th  t,  k     ',h    '    ^'■'^"'"•P'""""  °f  '■'"'  governments., 
would  show,  and  as  is  shown  even  better  In-  ,h.  I   ?    ? 

tation  and  other  matters.'  ^     niierpre- 


Sec    iD  Report  on  Industrial  Couxcils 
A  second  report  on  joint  standing  indnstrial  co,„,cil,  bv  the 
^Z^^Z^^^'  between  Emp,o3.rs  andtS,^ 
those^indnstriesi^^:;^-;,';.;:^:--;---^ 

tlt::r  "'    "''""''^''  =■""  ">  ^^■''■^''  --'-trie      he"  ,"" 

^^:^7ii::irisr:^;:i--^^ 
i?:^'tip7r:i--rx-irs 

.Iter  „  „5,„|,  ..,,„„,,„  ..,,  n       „A 

those  engaged  in  the  industry  "  "'"'^'  '"  ''P''''"' 

'A^iii'!  „('"'""■''''■ '^•''''•'■'■'•'"■'•'  ™1    2.  VP    1106-1107 


A 


^  u  .h-,i  the  oreanaunons  are  suffi- 

associatu.,,  ™ncerned^  s  ows  U  at    he^^^^  „  ^.   ^,,^ 

cicntly  well  Jeveloped  to  ,1'""  ^^.,,,„,ver  it  is  proposed 

proposals.  In  such  '"''"^  ""•  ^^  ^^  or  two  oh'^ial  repre- 
to  .orm  a  nat.onal  ^-^^'^^^„  ,,  the  council  and  should 
sentatives  should  ass,st  u,  the  m  .a  -  ^^,.^,^^^,^  ^  ,„,,, 

continue  to  sit  wuh  >t  n  an  f'^^Jy  is  s.,  con,plete  as  no 
until  the  organization  -;^-,^;:t  necessary.  Some  Group 
longer  tu  make  his  presence  and  a  iv.c  ^^^^.^^  ^^^,,^,,, 

B  fndnstries  might  he  so  ^"f'"'!.  .^ffo^ed ;  others  might 
l.ce.sar.v,  though  a  "-- Uo"-^^  ^  ^^  „,,..,  councU. 
require  district   councds    ^';.  "        ently  the  inteution  of  the 

Though  not  <'i-">y,^'^";f,„\  :, S,!  l>c  set  up  in  all  estab- 
commUtce  that  »"rks  cc  nm  t    -  ^^  _  ^^^  ,,«ady  extst 

Hshments  in  Group  1^  '"d';;^^'^^;  ^their  iacW  -i  organization  o 

Industries  in  Group  C,  1^"";\;  ,^.  ,-„r  either  nat.onal  or 

employers  and  --'<f\^/!  ;;";  1  liberation  and  agreements 
district  councils  or  for  'he    o      '.  .^^^^^^^^.^^  ^^    „„. 

„hich  take  place  ,n  these  counl^. JO  ^^^^.^^^^,   ,,;   ^^e 

„ittee  recommends  the  ^PP'''=^;'"^i,:,,„,„en-  of  such  decree 
Trade  Boards  Act.  '' V— ^^'^f,'  ,iUe  the  estahlishment  of  a 

of  organization  as  would  «"<!"  \f  committee  favors  such 
nationalcouncilordistnctcoun  .1      The         ^^.^^  ^^^^^^^^ 

modifications  of  the  ^^  J^^^f^^'^  ,,,es  of  wages  but  with 
boards  to  deal  "not  only  wthmm-mu  ^_^^  ^^^^^, 

hours  of  labor  ='"'1 . 1''!^"^"'  Tcomes  sufficiently  organized 
Where  an  industry  '^^.'^''"Z^l^nZ^rU  or  district  councils, 
to  permit  of  the  estabhshm  "    oHndu^     ^^^^  .^  ^^^^  „^ 

the  committee  recommends  that  the  t  ^^  ^^,^^^_  ,„ 

ting  the  ---  ':„t  — Ve  eltiushment  of  such  coun- 

order  that  the  steps  necessary 

cils  may  be  taken.  (^  ^^^  ,,,tions  or  areas  in 

In  any  industry  in  «^""P  f  °l^„i,,tion  to  make  participation 

which  there  is  not  adeciuate  o^gan  -         ^^^^^^^  ,,,„    „ends 


INDl-STRIAL    RF.CO.NSTRrcTIOX 


287 


npon  by   ,he  in.lus.rial  council       I„   ,'"!''"  "«""' 

Mieve.  .,a...„,„.„nho  chief  i„c>!;:,:;:;et:;;:;rM 

1«  br,„,B,n  „,H  or  one  „r  other  of  ,he  .chemes  con.a  L^Hn  ,1  it 
am!  the  prece<I,„g  report.     There  woul.i  „,en  be  b  „a  1, 
classes  of  ,n,h,str,es  in  the  conn,r.v-in,lus,ries  with  industrl 
councils  and  industrit,  with  trade  hoards."  '  '"""■'•'rial 


Works  Cummittees 

In  the  report  which  we  have  just  summarized,  the  Committee 
on  Re  at,ons  between  Employers  and  ICmploved  doe,  "T  . 
w.  h  the  question  o,  works  committees  in  n'dustries  in  r  r,  „n  C 
V  h'^h'  7'  ™™'->-  -P-.  "-<le  a.  the  ,sa,ne  t  e  Tenh 
-  h  tl  e  whole  ,|uest,on  of  works  ccnmittees.  \\e  have  n  dv 
noticed  that  n  the  rcnorts  nf  fl,„  r  •  ■  " ""  ""^'^ '^'"adj 
Unrest,  it  was  stated  that  h  ^"""""'"""^  ""  '"''"strial 
»as  stated  that  the  emploves  consulted  ■  howed 
especal  mterest  in  that  par,  of  the  committee's  r  port  wLh 
had  to  do  w,th  works  committees.  The  committee  itte If  re«a  Is 
the  works  commmees  as  "an  essential  part  of  the  sch  me  o 

j.~r,  „  „„,„„„  „,  „.„,  ,„„,  *;    ;    ™  oi  h. 

The  peculiar  function  of  che  works  comn.ittee  is  to  establish 
CcufSVoL^^nm""''''''  ^"'""'  """"'  °«  'oi'"  standing  Uius.rM 


2US  URITISU    LABOR    CONDITIONS    AND    LFGISLATION 

^mmm 

of  Labor  had  issued  a  memorandum  on  such  experience 

,.      I    ic,18      I    is  outside  the  scope  of  this  work  to  deal  fully 

great  vane  y  of  names,  »^<?  '""^    inery  of  trade  unionism,  the 

sible  for  this  war  time  development  of  works  committees.     An 
.Ministry  of  Recons.rucon,  SuppU«,e«,ary  ,<cpor>  on  Wor.s  Co,n.i>- 

^f  .V'..'rSl,^rr™iu^H.f  Re'poru.  No.  2.  ..  3. 


INDUSTRIAL    RECONSTRUCTION  OflO 

embryonic  sys.em  of  shop  stewar.ls,  actinR  orieinallv  for  th.ir 
trade  „n,ons,  had  in  some  cases  'leve.oped  in,,,Tn  l^L'  „ 
wh,ch  had  gamed  in  s.renRth  and  prestige  as  the  p3  „T  he 

ra,^=  union  omcials  had  declined,  due  .„^he  loss  ofT  i  ,  , 
strike.  The  m.roduction  of  dilution  had  also  nresente,!  m-,nv 
ques„ons  of  detail  which  required  the  es.ablishmen  o  dilZn 
commmees  m  many  establishments,  with  which  committe  Tf 
workers  the  management  conferred  in  i.s  en  .eTvn.To  "nl  r 
these  questtons.  So  also  methods  of  remuneration.  „mc  keep! 
welfare  work,  war  charity  and  other  causes  ha<l  beTn  a  t^^^ 
and  m  various  places  responsible  for  the  growth  of  an  organ"! 
H^n  withm  an  industrial  establishment  which  had  de«Toped 
no  a  genume  works  committee,  if  it  had  succee.led  in  cS 
the  confidence  of  both  the  workers  an<l  tne  management  ■' 

It  appears  from  this  report  that  of  the  existing  works  commit 

n  at  ?   M  ''"/u  """''  '"^  '"='"*^""™'  'as  dir  ctTe^e. 

ntation.    Most  of  .hem  have  only  representatives  of  the  work- 
ers    Sometimes  there  are  separate  committees  for  the  s^nied 
and  for  the  unskdled  workers.    Separate  committees  .represent 
he  wo„,en  workers  are  rare,  but  they  frequently  have  reprc       a 
tion  of  some  sort  on  the  committee.    Where  the  maiorifv  J  ,1 
men  ,n  any  establishment  are  unionists,  the  t  n  len        V  ,  L' 
only  un.on  men  on  the  committee     The  size  of  th. 
in  existence  varies  from  12  to  more  than    0'    Th      '°"""'""^ 

strongly  that  where  works  comm^eS  an   teTc:;:^ 
and  deal,  wi.h  by  .he  management,  those  who  repre  em    he 
management  on  .he  commi..ee,  if  i.  be  a  join.  commX    or  1 
me.  ,he  comm,..ee,  if  .hey  are  no.  members,  shouh   Idong  to 

d.  fc',';™"™; ";  ""t  ™-"~  ■•"  "•'  ~»"  .w 

w&.^'po^h""""'  '"'■  "'■■  "o-  '-»• 

'Ibid.,  pp.  25-26. 


300  BR.T.S.i    L,XUOR   CONU.T.OSS   AN..    LEGISLATION 

1  ,„=tipr.,  licforc  till.-  maiiaB"-"":"'  '"* 

Usuall,  .  works  connm.uc  en  >"'"«    '">"^   f;;;;;  ,,„„  ,„...  uu.,er, 

d,.cu.,  .hen,  w,.h  the  manwemenl    .   ^'  '  '^  ,|,^  ,„ae  um.,„  .tk....... 

„„  ,he  m.n.Ke,™„.;  ...  .h.  Us.  '" '"' ^,  ^'^   J"  "„  „„,,  usually,  a.  -ud.  carry 

,ion  .o  call  a  s.r.ke.     Bu.  -he  ""'\>  7™"'^^;  , '^',  „„ieJ  i...o  ac.un  hy  a,.y 

no.   leall  t"   execu.ive  aC.on.' 

The  worUs  con,n,it.ee..  the.fore,  ^r^^^^Z^i^ 
workers  to  the  management,  rhe.r  "S^'  «"  ^"^^^  ^f,  J,  ,he 
by  the  management  an.l  usually  tne  "''"^K  2"'  "gainst  these 
coo,.erat,on  of  the  works  commute.. ..,  ='"-1";^,  °^^  '   „,,,  of 

,r,evanees.  The  ^^-l;,  ^ ^  J':;:::;;.ons  common  to 
wages,  ho..rs  of  «ork        <nne    ^  ^^^  ^^^j^^_.  ^^^^^^^ 

the  district  or  to  the  .ndustrj  a    a  ^hoi'^  ^^. 

it  does  consider  and  present  '"'l'™'"?^^  3J"^ent  the  inter- 
and  piece  rates.  U  -"f  "^^;:l']'\,T::„'d^ions  of  work 
pretation  of  awards  an.l  orders  ='"''  '™  j,  ,„g^estions 

'within  the  establishment.  In  some  c.  -  ■  ^^  ma  g^_^  .^^ 
as  to  economies  m  the  run-ng  o  ..^-«  -y^  ^^.^  ^^,^,  ,„  ,, 
keeping  and  .hscM.l,ne^  The    xtet  ^^^^,^^^^^  ^^^  ^^^ 

introduced  has  been  dealt  wiin     >  management   to 

works  committee  has  Ixen  perm,  te     '^ J^     ™"J     ,.,.     jt 

suggest  alternatives  to  d"^"  :'a      ^ks  c  mmitte'e  should 
seems  generally  to  be  admitted  that  the   X  3r  ._^   ^^^ 

he  consulted   in   regard  t.,  .  .sm.ss    J     emp  »  ^^^^ 

rS;e:l::err:ot^r:rtbe  works  comm,ttee  the 

--s:r:h^^:=;-o"  r 'truSHs^c'r -^ 

of  the  fieUl  covered  by  such  -"^"^  "^^fng  the  war  is  that 
;„  r.roit  Brita  n  iinor  to  or  during  ii.c  ... 

existence  m  Great  B"'^  "  1  ,„„,  ,„  partici.ate 

these  commuteesh^ven^enn-^^^^^^    ^_  ^^^  ^^^^^^ 

in  the  management  of  'ndustru^l  '^'  Employers 
favored  by  the  Committee  on  the  Kelations  oe  we  i 

I^Employed  of  the  Ministry  of  Reconstruction.  They 
1  IVorks  Commiltces.  lac.  cil..  p.  27. 


I.NULSTBIAL    HECO.VSTKLCTION  30J 

not  usuallv  lH.<-n  ,i;r "il  (.tnpiojer  has,  lhiTff,)re, 

while  he  L:  L         '  erl™:""""'  ","  """  ™"'""""'^  -" 

ment  the  farther  remove.l  are  the-fr  n     Lrn?  "^^"'^"='K«- 

which  had  <.^:z:L!iztx^  tJn  In:  rrr' 

ever,  there  seem.;  i„  1>.  „     • .       \^""^"""-    Un  the  whole,  how- 
.ewor.^r::-------.ni,|e     ee^ 

01  ■  .strtct  or  national  conditions  are  left  to  ,"""'' 
wh,le  the  worl:s  committee  deals  wi  h  e     e    t  e  detV,'  ,""'"r' 
cat,on  of  these  general  rule.s  within  the  work,  or      1        ''''?''''" 
entirely  peculiar  to  the  works  "'  *'"■  ''"""""* 

Difficulties  arise,  of  course,  where  there  are  sever,! 
-n,,  unions  represented  in  the  same  estll^i^hrnTrwl^r;:: 


iipillipsii 

Z.1        '■''  •■,''  '"■''«■''  "1'  -l-n'R  the  war  in  ,t,        ''■  ''"'^  '"■"ar,!,  move- 
much   more   democratic  movement    tL^, I,  •■."P'l'eenne  indnslrv  i,  j 

frortj  c  ommillees,  he.  cil.,  p.  39. 


strengthen  rather  than  weaken  the  traae 

CONCIUATION    AND   ARBITRATION 

„bi.rati.,n  and  conc.l^t.on  ^-^^^'^^^  ^„.  people  that  the 
eous  impression  which  had  been  eii  upu  ^^.^^    ^^ 

ndustri'al  ccnncils  were  >"'-;'  ^-^  J*  ^j  the 'committee  at 
machinery  for  -thn.  -  --  ^'^^l,  ,,^,,  „„  conciiiation 
the  end  of  January.  1«»^; «?  '^^  ^^^  ^„  ,hese  subjects  were  set 
and  arbitration,  in  which  its  views  o 

forth  at  some  length,  j  compulsory  arbi- 

The  committee  is  oppo«d  to  any    y   em       ^^^^^^^     ..^^^ 

.„tion.     Full  of  -B-tonce  ^'^^  *o'^        8^^  ^^^  ^^^  ^^^^^^ 

experience  of  compulsory  "b-'"^'°"^  ^J^^„^  ,,„kes.  and  m 

that  i.  is  not  a  ^"'^<^"^'"'  "^X  prove  even  less  successful." 
normal  times  it  would  ""do^b'edly  pro  ,.  ^^.^^ 

Thecommitteeisnotevenin   avoro    a  y  „  ^^^  ,^ 

pulsorily  prevents  ^'">'"  °'  ^^'^h^pa^ies  which  provide  that 
does  favor  ='8".'™"'^  .^'"^'"e' to  arbitration,  and  it  favor, 
the  matter  in  dispute  ^^a"  be  'e>t         _        ^  ^^  , 

arrangements  in  the  °^g='"'"'' '"j"„,  •■  u  also  favors  giving 
before  recourse  to  the  extrerne  measures^         ^^^^  ,^^^.^^ 

,„  the  Ministry  of  Y^Z  w  thout  prejudice  to  the  power  of 
satisfied  that  it  was  ''"■".^^' "''^"^L  or  lockout  before  or 
the  disputing  parties  *"  <!«'"*  ^„  ^he  position  of  the  com- 
during  the  progress  "[  *e  mquiry.  ^^^^ement.  voluntary 

^Uteem-.y  'b«e fore  be  summed  upm  ^^^ 

or  compulsory  '-""«»  "Xlfevest^at  the  machinery  for  the 
arbitration.  The  -"7"f  .^'t/^hich  already  exists  in  the 
conciliatory  adjustment  ««  ^   Put"  ..^ufactory  and 

important  trades  of  the  «-"7  ;;  \„  .thieve  success  in  most 
wm  continue  after  the  wa^^  -  befor  ^^^  ^^^  ^^^.„^,,„„ 
instances,  especially  as  inc 


Iki: 


mniSTHIAL    REU)N>TRrcTI.IN  nO^ 

board,  may  bec.me  ,„.rB..I  i„  ,.r  c„rrda<.,l ...  the  ,„i„,  i„.,„s,nal 

The  conm.itt«  k-licves  Iha.  ,hc  „a,e  might,  however  co 
far.  er  .han  ..  ha„  «„ne  i„  ,ime,  of  pea.-  t„  f„r„ishl,  '  T 
mac  mery  f„r  vohm.ary  arh„ra.io„  „f  ,hs,„„es.  an.l  in  rcvicw- 
"f ,  iri""""""  '■'  """"'  """•  "'  "-  --'-  '^"•""•^''' 
"f  War  Acs,  the  Cmmmee  on  Pro,l.,c.i.,n,  consisting  of  three 
m.le,,en,len.  ,«r«,ns  a,,,.oi,„e.l  hy  the  government.  ha,l  te..Ie,l  ,he 

than  .hose  affechng  the  wag.s  of  women  on  mnni.ions  work 
The  committee  therefore  concludes : 

.,E™i7r.~.;,t"™Ti;-;r.-,  ? ■" '■■ 

»e  p, c..r.!,!e  for  hearmg  local  disputes,  etc.    It  also  suRgests  that 
m  order  that  there  may  l«  coordination  of  .lecisinns  by  the  loca 
arbura  ors,  .he  department  which  appoints  the  arbitrat  r     houl 
crculate  among  them  the  awards  and  decisions  of  the  standing 
arbitration  council.'  sianuing 


The  Government  Takes  Steps  to  Establ.sh  Industrial 
Councils 

Having  satisfied  itself  that  the  proposals  of  the  Whitley  com- 

Z      ''     ,'T'  '?"'"«  '"'''"'"'"  ™""^''^  S'''"='"y  -et  with 
the  approval  of  employers'  associations  and  .he  trade  tmions  the 


^.  „K,r.SU    .AB..K    CON,..T..>SS    AN.-    ,.r..-,,S>,AT,ON 

„,;„H  ,;„«n,n,e„,  ann„uncc;l  «;-;' --J^^^.^y  c»Uc..  f-r 
action  .m  its  lart  ami  ""  ^'^'"'*    "  •j„,  j,  „, ,«  umkrsi,..Kl  i1k,i 
,he  c,.«.KiU  will  1.C  '""«-"■' ;'\'^J,„,  ,„est,..ns  affcc.i-.« 
,„e  i,>.l.,s.ri.s  which  '^^y  Xr,«n     .-1"1--'-"'  "" 
i„U,..ry  will  i..  souKht  ""  •■•    ;-^'      ;:^'"    ^.M  ,.  en.Hlol  .„ 
.,„,,.coKni.ion.l-owev.r   ..m    t«.     y         ^^^^„,^,i,,  ,„•  ,he 
,ha,  i.  was  so  cons.u.ucl  as  . .  h.       ly      P   ^_^^  ,^_^^^^  ^^^^, 
in.lus.ry.     The  t;..vernmen.  ^^  ^  '      f^^.^i.e  and  has  n,a.le 

suEEes.ionsasto.he  f"rm"f  >'      ""  .^^^  ,he  establishment 

council."     It  has  »!»  -P-    '\    ^^^  !Ly  a  large  amount  of 
of  such  councils  w.ll      "^f    "  ^,         ent  unavoulable, 

trial  councils  .s.al,lisl,e.lnn>nva.enclujue^    ^^^^^^   ^^^^^^^^^  ^, 

report  of  the  -P-'^-^^^^.^;  ,  "  ffeC  that  .he  public  interest 
Labor  Statistics  in  "^"k'""",'"  ,"  „„,,,r  than  in  any  .)"e  recon- 
in  the  Whitley  report  ,s  P™'*^     E^  «e  .^  _,  ^^^^^^  _,^.,^ 

struction  scheme  an<l  that  th    ^  '"^^^'•"j,-^,  ,„  „ee.  associa.ions 
.t.en.lingmee.inEsarranEedtoenallc^^^^^^^ 
ofemployersan-lworkpeopkinagiv       ^^^_^^  ^^^  ^^^  ^^^^^  .^„     f 

Nearly  every  .ra.le  in    ^e  L  n  te<^  K    ^     .,,^^^,i„„  ,„,  np  to  the 
establishing  ;"d-«-f  ^  °","te To,  e-  '"'l^'  '>^'  ""'"'"'^  T  t 

,Q„„,ed  in  the  Afo».W.^«^-«™™''°'- '•"■'*• 
s  /I.H..  Pl>  76-79. 
»  /?>id..  P-  28 
« /Wd.,  p.  80. 


l.NrHSTm.M.    KIKIXSTKl  CTIOS  305 

cTn';' ,  7"'">-""V"''"  '"'^"'"''^  '''■  """'i""^'i "  i"  which 

cn,,>„k.rahl..  |,r„«,,.„  h,,  ,^,„  „,.„|,.  « 

^■"--'  ""l-tr,.-,!  c,  unci,/'  an,l  "  i„,,.,inc.s  „,„,  r.^.-.r,!    o     .    , 
jna  ,.,n  .,f  j„„„  ,„,„s.rinl  c„u„c,I.  ar.  p.„l.,|i,;      \  ,1 

counn"'.  '  ""''■•  '"  """'  ™^'^'  ''"•'''■>'  '"•"  J"""  -i'-na, 

ft  thus  ap,,cars  thai  the  mov.mc-nt  f„r  joint  in.li  trial  councils 
■s  mak.n,  rapi.l  hea.lway  ,n  private  i.ulus'tries.  The  pt  „ 
ha  heen  cr,„c,ze.i  or  not  having  set  an  example  to  en.plove" 
ami  sho  v.ng  „s  f.-.th  by  „s  works.  Uy  settn.g  up  industrial  coun-' 
c  Is  ,n  ,ts  own  ,n,lustries  I,  has  In-cn  urRe.l  that  this  be  ,1.  ne 
p cal ly  ,n  the  Post  Office,  an,l  the  Assistant  Postmaster  Gen! 
eal  sa„  ,n  the  House  of  Commons  on  June  12.  UMM,  „,a,  thi, 
proposal  wouhl  come  before  the  Cabinet  in  a  short  time.' 

Industrial  Councils  ani,  Trade  Boards 
Having  announce.1  its  acceptance  of  the  proposals  of  the  first 

June.  l.MH,  took  up  the  proposals  of  the  second  report  and  in  a 
jomt  memorandum  of  the  Minister  of  ReconstrucMon  an  1  he 
Mimster  o  Labor  set  forth  its  policy  with  reference  to  industr 
m  Groups  U  and  C.  as  deal,  with  in  that  re^r..  The  announ  - 
mem  was  made  that  „  had  not  been  found  possible,  tron,  the 
admm.strat.ve  pom,  of  view,  to  adopt  the  whole  of  the  recom- 
mendations  contained  in  the  second  report,  but  that  the  modi- 
ficat,ons  wh,ch  ,t  had  been  necessary  to  make  did  not  alTec.  the 
principles  underlying  the  committee's  reports 

weye'LT'ior;"" "'"' ' '-'  "*™  ^""""  --"^  -  -^« 

(1)  rt  was  decided  ,o  recognize  one  type  of  industrial  council 
only  and  not  to  attach  official  representatives  to  the  council 
except  on  the  application  of  the  industrial  council  itself.     The 

'Lahaur  Ga:elle.  1918,  p.  308. 
Monthly  Labor  Knieu:  vol.  7.  p.  80. 


.„«  BK.T.M.    ■.A.OB    CONO>T,ONS   AND    I.EG....AT.ON 

306  BRiTiM'   u  ,         r  .v,„  committee  to 

government  thus  departed  from  f  e J^;^;  ^^.i,,,  industrial 
?eco,ni.e  the  existence  o£  ^^%,,  „„,y  partialiy  de- 
organization  of  employer  --^^^J^,,,  official  Rttidance  to 
veloped  and  wh.ch  would  therefor  4  ^^^^__^^  ^^^^  .^  ^,g„,, 
organize  industrial  counc,  s^     ^^^  ^^^;„„  ..^ich  the  commUtee 

,o  the  distinction  ■"•"'^"f"';;'^,™  action  is  between  industr.es 
sought  to  draw-' The  o..lyclea<hst  ^^^^^^.^^  „f 

^hi'ch  are  sufficiently  "'^^^  ^U  are  not  su«lciently 
joint  industrial  eouncl   and    hose  .^^  ^^^.^.^,  ^^ 

control."  ,  „„    .,  in  regard  to  .ndustnes  not 

(2)  The  committees  P-^^^^^'  '"..Jioped  to  warrant  the 
having  an  organizat.on  suta^nt  y  ^^^P^^^__^^.,  ^,^  „  j 
immediate  estabhshment  "'  ^  ;^",^^,^j,  ,„d  that  these  should, 
boards  should  be  »""™^'l  .^^f^^y  „[  Labor  be  enabled  to  or- 
with  the  approval  of  ^^^^^  ,„nncil.  were  regarded  as 
n,ulate  a  scheme  for  an  mdus^  ,_^  ^^^  and 

^practicable  owmg  to     ^^^^     „    ^he  memorandum  pomts 
structure  of  the  two  types  of  bod.es.  ,^  ^^^.,,n  the  two 

Tat  some  length  the  fur,damentac^^^^^^^^^  ^^     ,      ^ 

bodies  which  may  be  br.ely  jeUo  ^  ^^^^^^  ,^    ^j 

industrial  council  is  ™'""'^\  "be\ Unister  of  Labor,  (b)  An 
a  statutory  '^o^'y^.^'^'j  f  1^„  '  de  lim.ts  to  determine  .ts  own 
industrial  eouncl  ^^'^^^^ ^''^^l^  primary  function  the  dete,^- 
{„n.tions;  a  trade  ''oard  ha    as  ,ts  P  ^^  i„dustr,al  counc.l 

,.i„ation  of  minimum  -  ^  :  :  „„netary  aid  from  the  gov- 

is  self-supporting  and  wlrece.ve  j^f.ayed  out  of  publ.c 

ernment;  a  trade  boarJ;Y''i;r",     ^."^posed  ent.rely  of  repre- 

„v     (d^  An  industr.al  counc.  is  co.  i  ^^  j,,^ 

:r    i've    of  the  employers  -;°-';°:;  "teptentatu  es  from 

"dut^ry,  a  trade  ^^^'^jltl^T::oLJ.^  w,th  the  trade^ 

the  industry  but  appo-"'   •j^^^'^^  ,,,„,  i„fluence  only  over  the 


INDUSTRIAL    KEtOXSI  KICTION 


307 


ex.s  ing  organ,za.,„n5  of  employers  and  e.nploved,  but  covers  the 
woe  of  the  trade.  The  n,e„,ora„dt„„  says  that  in  view  of  these 
d.s  .namns  m  function  an,l  purpose  hetween  industrial  councils 
and  trade  boards  "  it  is  possible  that  both  a  joint   industrial 

industry.  VVhde  th,s  may  1«  ,,ossible,  this  certainly  would 
not  harmonize  w,th  the  avowr...'  ;  ,„p..e  of  industrial  councils 
winch  were  mtended  to  pro^  :  .•  a  de,,,.,,:.-,.  .  method  of  indus- 
trial control,  without  interfe:.nc<  liy  the  si  ,c 

The  discussion  of  the  res.  nliance.  .-m,!  diirerences  between 
industrial  councils  and  trade  bc_.-us  ai„.  a  -ealization  of  the  fact 
that  some  industries  were  not  providerl  lor  by  other  schemes 
may  have  influenced  Parliament  .somewhat  in  its  decision  to 
amend  the  Trade  Boards  Act,  ISHMl.  in  such  a  wav  as  to  provide 
for  a  considerable  extension  of  that  mode  of  industrial  rcRula- 
tion.  The  reasons  which  prompted  the  legislation  of  VMfi  are 
thus  stated  by  the  Labour  Gacetler 

af.'e"rt"w°a'r'lf' °""°"  "'  '"f"'"  *"''"  ''  "  ='PI'->'ende,l  mav  occur 

^n-jr^r',^riH^c;::,--^.x^:;--i-2 

in  muniUon  works  and  other  war  industries-  and  n„  ,h.     ,r    i      j  T 
nunihers  „,  wo™en  have  entered  occur^rs-JhrcVL?;,  ^c  .^"c  ,  ^^^d 
10  men.    The  first  class  will  lend  to  trv  to  find  wf.rk  in  ihcir  old  ,rJjT 
.  e  deniand  for  war  nialeria,  slackens.' w„h  keen  con,  le.i'"      ,     e  ^  :" 

in  these  trades  as  a  resul,;  and  the  second  class  wMI  in  manv  cals  hi 
driven  ,„  compete  for  emplo,n,enl  „i,h  ,he  re.urnin"  ^,d  /  r.olh 
cases  the  competition  for  employment  mav  reduce  wages  to  an  undu  v  low 
level.  ,mless  precautionary  measures  are  taken.  '  '"" 

The  success  of  the  Trade  Boanls  Act.  ItlOl).  seemed  assured 
but  there  was  need  of  making  such  chan.ge  in  the  act  as  should 
make  It  unnecessary  to  ..ecure  a  parliamentary  order  before  trade 
boards  could  be  established  in  new  trades.  Untler  the  new  acl 
the  Minister  of  Labor  can  bring  a  trade  within  the  scope  of  the 
principal  act  by  means  of  a  special  order  although  Parliament 
may  later  annul  this  special  order    The  Minister  of  Labor  may 

Re||^^|^^:r;!^°M^.S'o?Tatr.  ''^7-%^,^!'  «'>=  M^"^^'"  "' 


a08 


imrnsii 


l,.M!OK    CllM'lTlDNS 


AND    l.i;r.lSl..\TlU^' 


alsocMuuluK.  ^^■-■''-  '■;;■",  „„.u,,v  low.  ur  there  .s 
„•   defective  nrKan..a,>.,n   Nage     a  e  ^^^^^^^  ^^^_^  ^^^^.^^^  ^^,^^ 

...sonU,appre:,enua.;mdueU    .-a.^^   ^^^^  ^  ^^^^  ^_^^,  ,,y 
con.lilio.is  have  passed        Ln  ler  ^^^^^_^  ^^.^,^.,^  ^,,^ 

,  ,ra.le  1..  :.rd  n>ay  he  hroughl       o    ul      1  ._^^^^^^j  _^j 

,™,nhs  after  it  has  heetj  proposed  h>^a  tra^^^^  ^^^^„„„^.„j,„„„ 

x;;:=:»»  "»=■-■'"  ■-"''""■•''"' 

"'"  ""■'  .„.  BRIT....  LM'O-  P^x^^ 

RFXONSTRUCT.ON   PROOKAM  OK  T,.T.  BR.T.M. 

1  ■„  H  it  did  not  discuss,  at  least 

This  chapter  would  he  "^'^^^^^ ^^r^cU..  pn.gra.n  of 

,,r,e,lv.  sonte  of  the  deman.h.  m  th       c  ^^,_^^     ^^^^^.^.^^ 

Ihe  British  Lahor  party  "^-^  ";^';;"„.|;,,  ,,.,/,■..  AUhough 
".Kler  the  title  of  '-"'"""•  "'f;,„„h  ,„  discttss  platforn.s  of 
i,  i,  not  the  funct.on  of  th,s  ""  "^-/''P^  ^^,,,i,,,  this  .locuu.cnt 
,ny  pohttcal  party,  the  c-un.stances  -<  cr  ^^^_^^^^^.^^ 

ha;  appeared,  as  well  as  >"-  *  -^.^"^^  ,,h  Labor  has  set  forth 
and  the  forceftd.  yet  '"""'"'^^^'J^i^lp.ning  from  the  usual 
-.r:;::;:iW^~^trpiaL.  in  the  program  are 

-r  U-ttsh  Lahor  party,  which  w.;orn..H;--^^^ 

,h.t  year  had  a  t--^— ^f  .U  P  ri:.!  o\'  the  war,     .n  ,...T 
able  gr<nvth.  especally  .lur  ng  t      P  ^^^^^^  ^^^,^^^^  ^^^^^^^^^^^  ^„,, 

the  total  niembershtp,  •"='>^."y  f^,,  members  from  other 

members  of  soeiahs,  ^«»="';' ;;';„"    ^he  eooperaiio.t  between 

organizations,  was  g.ven  as  -■  J  ■         .        „(  ,he  'Lrades  Union 

the  party  and  the  P"'-"-'^    ^J  "'^nhermore,  within  the  last 
Congress  has  become  very  mark  d  ^.^^^^    ^^_  ^^^^,^^ 

vear'it  has  appeared  ^\^  ^^"^  ^,,u..  societies  which 
-.trong  support    rom  -"-'^^^."^^ess' steadily  refused  in  the 
have  through  the.r  »"f"»'    .^^  ^^^   Owing  to  the  adoption  by 
past  to  engage  in  poht.cal  activities. 
.  Uh-ur  i.a=citc.  W18,  p.  308. 


v., 


I.VDL'STRIAL    RECOXSTRICTIO.V  308 

thecZ'    r''  "^"^>""•"^•  '"  "'^'  f-^'  "f  «™nK  protest  from 
the  con,H.rat,ve  socet.es,  an  ett.erKccy  confcrcce  of  the  cooper- 
at.ve  movement  ,n  l.o.ulon  i„  October.  11.17,  ,|eci,le,l.  praciAllv 
"nanm,ous^v.  to  take     p  political  activitv.     The  executive  com 
m.ttee  of  .  e  Lahor  par,,  a,„l  the  paHiamen.arv  commi^r" 
I      I  ra,les  bn.on  Congress  invited  the  new  pohtical  cn„,„,i„,,  „f 
the  cooperative  movement  ,„  confer  with  them  in  re-Mr,]  to  n 
common  pro,.ram,  an.l  this  invitation  was  accepted      I,  seem 
.  ely.  therefore,  that  in  seeking  to  carr,-  out  ,ts  new  pro«ra„  ,h 
Labo     party  can  count  on  con.si,lerahle  support   from   the  Z 
operative  movement. 

The  e.xecu.ive  committee  of  the  f.abor  party  appointed  late  in 
!■  1/  a  s,K,  ,1  subcomm.ttee  to  consider  an,l  report  upon  the 
subject  of  reconstruction  after  the  wir  ThiJ  ■  i  '  .  ""^ 
h-1,1    i„.   .1,     1      •     •  /  ""^  subcommittee 

had.   by    the  beRmniuK  of    llils.  prepare,!   the  report   entitled 
Laln,ur  and  ,hc  AV„,  Social  Ord.-r.'  which  having  received 
sane  , on  of  the  e.xecutive  comn,ittee  was  published  and  cr    ! 
ated  widely.    It  was  presented  to  the  .Vottinpham  conference  of 
he  party  ,n  January,  U.1S,  and  was  by  resolution  referred  by 
he  conterenee  to  all  the  constituent  organizations  of  the  party 
in  j™e  =  ""'"''""""  f"'"'  '"  '"='"«  •••''^^"  "P  hy  the  conference 
The  report »  begins  by  a  recognition  of  the  fact  that  the  worl.I 
.    s  andmg  on  the  threshold  of  a  new  era  and  that,  if  civilization 

Z\  T  "T  '°  r"  '  '-'''  '"^  ''••'^'»  °f  "-  existing 
social  order-',  the  mduidt  ystem  of  capitalistic  produc 

.on  -has  received  .ts  death  '..v.  The  Labor  parte,  it  goe»  on 
to  say,  will  certainly  lend  no  hand  to  its  revi^•al  "'  What  -he 
report  attetnpts  to  do  is  to  lay  out  the  plans  for  the  new  .soc'ial 
structure  wh.ch  .t  ,s  hope<l  will  take  the  place  of  the  one  doomed 
Mr  g"d"h  r  J'  f";:;r'''"  "'  '^^  ^°"^^  -I'i'^''  'he  Labor 

re,„  Developments  i„  l.,e  iiriiisS  Labor  Moveme,;,"  i„    f''  ^^''K    <"  '*'" 
Rrrie:.:  September.  1918   p  496  )  -"ovemeiit     m  .Uiirncan  hconomk 


tinuham  and  London.  19IS,  pp.  .17   116 


of  the  democratic  control 

names  as  follows :  „„„  „i  ,h.  national  minimum-, 

(b)  The  '11='""""". '  „,,i„„al  imancc;  and 

(c)  The  revolution  "i  «»"•'"  „„„„  good.  ,.    . 
,,  The  sun>l»  wealth  for  the  co,                            ^     ^^^  „^^n      ,he 

*B„  a  national  m.nimtim  the   "  "  ^  ^'^^i.^  ,„  good  times  and 

Health.  Housing  and  fc.ducau..n  .^^  ^^^^^^j      mese 

"and  to  this  legislation    '*  ;%„«„ent  and  extension 

i;:s::^."<--t^™;^Vn,^::dri^si:accor^ 

„„Ls  than  :iOs.  per  week  (which  ^^^^^  ^^^^^,„      base 

:\,ie  level  of  P"-)  J^U:  wol^erl  men  or  women,  m  any 

--r:::-a;ci.c.i.^^^^ 

P™''"'="°":!l,    .litalileempl 


,nt  any  ^""^''"^""'.ctWe  work  rests 


ganiiation  for  placms 


INDUSTRIAL    KFXO.V.^TaLCTION  3JI 

one  month  :./ore  ,l,c  <1;,..  fix -.r  „r  his    I     ."      "  ''""=''"«'  •""'"  »"•"'• 
trade  union  .0  „h,ch  he  Uul'J.  l7 w^h^'fo^fr.:  "'  """"'  °'  "" 

goLrnrenfr„r"";'^  "''•  ='P"'  '"'"■  "'^  '""^  -ions,  ".he 
Liovcrnmcnt  rcsponsibilitv  acrnnlin,.  .„  ,1 

ment      to  take-  all  necessary  steps  to  prevent  the  staiKlar.l  rates 
of  wages  ,n  any  trade  or  occupation,  whatsoever   from  s„ff 
any  reduction,  relatively  to  the  contemporary  ;ost:fivnT^ 
Private  employers  should  be  informed  that  an  attempt  to   ower 
wages  Will  mean  industrial  strife.  ^ 

Unemployment  must  be  guarded  against. 
It  is  now  known  that  tne  covernmetif  ran   if  ;»  ..u 

:z  rt- r-  t:t^S^B^=^''^^ 

men,  'o  prevent  any  col  eablfr  \^"""Z''^"^"'-'"'  "'  ""^  «-""" 

numbers  e:p,o,edTn^ir'or:ood°o;:a'ftre':'  ''"""'""  '"  "''  '""' 

The  government,  it  is  urged,  shoul.l  prepare,  at  once   to  carry 

out  a  schena.  of  public  works  either  .lirictly  or  through  the  bcal 

zZT:rnr"' '''  -^--^'"s-vhich  migt  ':.i'r 

adopted   the    following  are   m-ntioned  ,•   new  houses    in   cities 
leges,  roads,  l.ght.  railways,  unification  and  reorganization  of 


312  e,,..u  .ABO-  coKomos-  .Nn  .— "- 

port  and  harl«r  ""^""^'^^'^XXl  "'""  '"'  '"'""• 
[and.    It  is  also  suc^ested  thM        rcW^^^^^^^  ,^^^,_^^  ^^^  ,,„„,.! 

from  an  overstocked  labor  ,na  Ket  ,^  _.^„,  ,,„,,ar.es 

be  raised  to  -'-' V'^l'  ""itcat"  "  l->-'  '^^  '"---"■  ."'^ 
for  secondary  and  h.^her  -^J^^^    '  ^^j„,,.,  ,ven  below 

hours  of  labor  of  young  P- 1''  "  ,,„„  ubor  shouUl  be 
eight  hours  a  week  and  the  "ours  <  extension 

Snced  to  not  more  than  ^<"^^^;X^,  out  of  work 
of  unemployment  i"-"""^""  umons  s  demanded  and  the 
henems  provuled  by   .be   '" '.^^^^^'^^^  ,,„ieh  was  withdrawn 

resumption  of  the  government  sbven^on  ^^^^  ^,„„„„ies" 

in  l'.n5-"one  of  the  least  -cu-W^  ^^  ^^,,,,  ,„,  i,  should 

-:r::^t  ::;:"-< -—tspem  in  out  of  work 

'^r^ttin.fonhitsp.op.a.-^;^^^ 

in<lustry.  it  should  be  --'^  ^^J^'Xme  for  industrial  cuncls, 
totheKeconstrucfonCommtteessen  ^^  ^^.^^^^^^  ^^  ^^. 

although  this  shouUl  not  be    nte  F  ^^  1  ,^^  ^  ^^  ^^„^„,e 

friendliness  to  that  plan^    f"'^  ^^'';/^,  ,bo,ition  of  the  House 
adult  suffrage,  equal  "^hts  for  loth  -«-  ^^^,^,,  .^at  the 

of  Lords,  and  ^''""-J"'  — 'i  e  all  liberal  parties,  "in- 
Labor  party,  unbke  "^^  ,^""f"^„,„  ^^  in  government." 
.ists  on  democracy  m  mdustry  as  w  1 U  ^^^^^^^^  ^^  ^^^ 

„  demands  the  vrogre.sWe  f-^'-J-T^r^e    'e.nn.  '-  of  a,>  «ho 

''Nation   of   the   ^'^•"i'''':'T'TZC'^"'-'A  ot  separate  pnva.e^m- 
rbandonment  of  British  industry  to  »  l"'^'""-     ,„  „(  ,t,e  community,  but- 


I.VDLSTBIAL    KECONSTRLCTION  3,3 

and  occ,„.a.,„„s,  ,„-  ,h,.se  syslcns  an,    ml;  1  '"  '"'""='■''"  "■"'«» 

TO.  .ha.  ™,  b.  ,„„„d  in  p„c„ce  He.  .ottr^H:':;;;^™;- ;;""  "■" 

The  paragraph  just  quoted  ,eems  at  first  trlnnce  i„  k 
erafon  of  the  position  of  the  state  s„c  a  ,     T  ?  *■'"" 

Iheir  nroL'ram      f.-„rti,„,  '^i-  a™i  to  he  in  accorclamo  w  th 

*;5*r:  -?,■  -"r"  -"-  '"»*^^^^^^^^ 

i«]..,,w  i..„^  „^r  ;"„,';"'"';' , '""  ■»'»« 

regulatior,  of  the  traffic  '""  °'  P™*""'"™  =•""  '^e 

Municipal  socialism  should  extend  not  onlv  t„  .1, 
public  service  industries,  such  as  waXrelltltHn^d  Thl 


^U  BR.T.SH    ..ABO.    COND.T.ONS    AN..    .XOSUATU.N 

,i„rarie,,  .ho  -K-?"'-''""  "' ""^d  by  a  cooperative  society, 
dustrie...  where  these  are  not  orgam«d  by  P  ^^^ 

The  program  wouW  have  the  «P""""  ^  ,  „f  ,he 

-'  by  the  goven^ent  i"  -  a.u.pt.^o.  the  co^^^^^^^^ 

::srr,:lo.rs;;p...wo^;^---^^^ 

ana  shoe,  milling,  bakmg.butchermK  ami  othm  l^  ^^^^ 

,00.  use  .,y  '^'^"Ij;:]::^''^::^^  purchase  of 
hands  of  the  monopolist  trusts,      me  _,i,terial  to  the 

,aw  material  and  the  ^"'''•^^.^''■"""f J    ''^i  "d  ting  U,  stop 
several  establishments,  the  puhhc_a«oumn;^^^^^^^^  ^^  ^^^ 

waste  an.l  put  an  en.    to  the     mecna  ^^^  ^^  ^ 

continue. 

TH.  nue.,o„  o,  .He  -"U  pnc«  o.  ^^.Md^o.,...  U  ..^a.|»-W 
the  mo.t  practical  of  all  pol.ucal  -;"«  ■>  ™  J^^,,  „,  g„,ernmc„.,  and  ju« 
,he  Ubor  pany  holds  '^^  '^J^^^^^XXo^:  o.  industry,  t„  salcBuard 
as  necessary  a  part  o(  the  democrat^    eg  ^^^     ^^^_.^  ^,,,,  ,^^. 

,he  interests  o.  the  -™'""":'\",; 'J,*^  f„  "pHces.  as  it  is  by  the  Factor, 

HHBSBrtd^^--"--" 

direct  taxation  of  private  fortunes  ^  ^^  •^;  «  '  1  ,,^„  .-  Hsing 
It  favors  progressive  taxa  lon  on  -^"  '  °'J  ^^^,,,,  i„„„e  up 
from  a  penny  in  the  pound  °"  ^^^f ^^J  ;  ^n  the  highest 
to  sixteen  or  even  nineteen    hillings  m    he  pou       ^^^^^^  ^  ^^_ 

j^it:^:::^^— reas^- •'■-—- ^'^^ 

said: 

We  need,  in  fact,  completely  to  reverse  our  Poin.  o^;;- .^ot  1:.". 
arrange  the  whole  taxation  o    "^herrtance  J^  ^^^^^^  ^  ^^^^^^^  ^ 

what  is  the  maximum  amount  that  any 


:llii 


■Nr-LSTRIM.    KEroNSTHWT.ON  „,, 

death    to   divert     hv    hu        n     c 

Uiit  the  most  radical  of  il,  •!,„  c 

i^  -  which  has  halt's  ;,;^  ^X'z:'"^^ '-' " 

<leman<l  that  the  national  ,ul   I  ,  '  ''■"'"■■■■•l'— is  the 

»  special  capita,  l"        ch    1     T"'  *'  """  '"^  ''>'  —  "f 
property  at  "  n  ,.s  v     '''■"''7'''"^  ''I"-'  "'^  'l«^ath  .lutios  on  all 

Pfrcen,a«c  fn,n,  the  millionaires  "'^  '  "  ™'^  '""^■''  '■•'^«" 

^::^:tr:ai:--£r-^^^^^ 

fortttnatecapitalists  even  the  mate     l'  "'"  •'^'""^  "'  ""^ 

cover.es  "-which  has  hiM^H   "•^'""'l  ""Icome  of  scientific  ,lis- 

.hen  „een..levote.  ven  1    !    :  T'  '"  'T'^  ■'^"''-"-  -«> 
Pl"s  is  to  U.  appropriaef t  ''    ■      r    "''■■"''•^■■''    "^'"^  ™^- 

-'1  i.y  Meepi,  ^,ina,::na^ti ":  ^t""!'  '"""rr''-'"" 

provision  for  the  sick  an,l  infirm     .'.r  '  "™'  ''"■  ""'''''<= 

IH-  acciclcnt.   for  e.lnca.i on    „!  '"'*''"'  ""''  "^'"^"^  '"''■•'l''<^'l 

all  kin,ls,  an,l  fnr  J  e,  "".','""•  ■""''"  '"'I'-vements  of 
vesti,a.ion  an,l  ori'in"     e    :r:hTn    '""''T"'  '"'  ''''"'"'-  "'- 

-i/"rn.sic.ii,e;t.,,l:::r^t:rr;;-^r'"''"'™'"'^^' 

the  m>p„rtance  of  e.lucalion  and    he      I  '"'""""  """" 

"hich  shows  the  efTec,  of  h  ,  ="lvanccment  of  cnltnre 
"i'hin  the  LalKfrprr  .  1  IhTh"?'",';'  "^  "  ""'"-."als  " 
pan  for,he,ualit;,Vi,st',,:;X  """""''  '"  '"'' 

.'^-nirr^::;-:-:::^'::;"'"^-'----'''^- 

antonomy  for  the  various  par,,  „  h  r^T  ""'"  ""'•  '"^al 
™,-e  self-,overnment  wh^;  ^  r'^,^'""'--  -'  "-o- 
"miperial  council  representinr.  ,.  ^""^  Party  favors  an 

alliance."  ,,„t  only  Z^T/rLZ'T''  "'  "'"  ''■"''""'' 
taneous  consideration  ofThe  an  nnomf'T;  '"'  '^^  »™"'- 
Party  oh.iect.s  to  an  "  ceo  o^  '^  :™:,'""  ''.';"'--""^^«-  ^h^ 
-•oO-.-Wt  stands  for  a  uni-Li^-;  ;;---- 


„R|TIS11    UABOU    .ONUItlONS 


ANll    LEGISLATION 


■I 


«■>: 

'4'' 


M 


•IIB  imlTISll    UABOK    ."""• . 

;L— ■"■rsxiis-"^^^^^^ 

c„„ncil  ..f  "atmns.    ^""l^;;  ';,    '  ,„,  „H(W.  '-.>'"""•  ''''^'>'; 

en.U,e,W..^,n...«.n..^^;-^-^^^';;  ^,  .,,  ,,,,     The 
si.lcraiion  to  the  Jutie,   *"•.;.  were  there  adopted  differ 

«,..,„;..„•.«  on  A'.--"-  -;  .he  ^„r    stately  language  of  the 
.vuUly  in  their  «or.l>nK  from  the  m  .^  ^^^  ,„^. 

earlier  document,  yet  there  !!  ^  '^,^/"  „„„  is  mor^   -pecifie 
stance  .>(  the  two  proposals.    1  he  1.       1  ^^  ^^^,^^,.^     ,,  „ 

in  regard  to  many  po.nts  and  lessso  m  r  g  ^^^^^  ^^^  ^ 

,,,,  I-  .  m  its  ft— •.PX7,,,\'r  ational  debt  shall  be 
,,vy  on  capital  and  no  •--  "«  ^'^^^^^^j  „,ation  are  not  so 
paid  off.  The  demands  for  g^a'^^  ,,i,„i,,u,ion  of  the  socal 
e..,reme  and  little  .s  sa.d  -»"•';;,  '\^i,,  „,,„„,  political  and 
surplus.  On  the  other  h^™';,.'"""  ''  '^  „,e  for  Ireland,  and 
::nstitutional  reforms,  inc  .dmg  hon.  ju'e^^  ^^^^^^.^ 
e,pecial  attention  .s  g.ven  t        .^  ^^^,,  the  demands 

cipation  of  women.  As  °"« .•"'S"'  ;  ;„„  ^„,\  for  the  apph- 
d.  the  promotion  °f  -^  «  ,  ^Ji^n  of  social  and  economic 
cation  of  scientific  ^f"'^''"'^''        „ade  so  strong  an  appeal 

-t""  i:::-:^.  f^d^i- ---  -  ^ "'"' 

written  mainly  by  trade  ^"^Tth.  near  future  these  various 
What  chance  \-.,=>'»°P'X  ^n/have  calls  for  a  power  of 

proposals  of  the  Br.t'sh  Labor  pa   y  ^^^^^^  ^^.^r. 

political  prophecy  which  '^""V^^f'^  general  election  comes 

?t  seems  to  be  genera  y—^^f'^,  ^  Labor  party  is  not 
in  the  near  future  befo-e  '"e  wa  ^^^  ^^^^^  ^^^^ 

i,.,y  to  receive  a  plurality  °;  "  ,   ^  „„ngth  and  if  the 
the  party  has  undoubtedly  S*"''  rapia  y  ^^  ^^^  ^^^_ 

CoaUtion  finds  itself  cominued  a   ^-^^e  P^  f^^^^^  „„,  ^  ,;„;„,  to 

ernment,  it  -^'^ -^;,  ^  f^r^  nds  in  return  for  support  of  the 
^cede  to  important  Labor  d  ^^  ^^^^  ^^  ^^^ 

1  These  resolutions  a«  given  in  T/.<i"rt,ey, 


INDlsrHlAL    KKIONSTHIITION  3,- 

Rovernment  nnu'rani     Vnr  ,1,,  .i,„   i 

h.-..s  n„.  f„„n,l  i„,„-  .n„„    11       '""'r' '''"''''•''■"  "'•''■I' 
control  which  w„    ,1  h"  '  ,"'"''"  '''  '^''^"^^  '"'  ^•'"^'^'^'^ 

progres'of  .he":i;,  "'    '  """'  '"  '■^''^"  '■'•'«  ''"-*  th. 

Report  ok  Comm.ttke  o.v   Adult   Ed.cat.ok 

■eves  that  ,t  is  not  only  the  wish  for  fuller  perso  a    u- ,  1 

iz^'^hn::tsrt:^'v"F ''---- 

confronted  a.  the  close  "l?  "^,''  "'^-  ^™'"'^>-  »'"  '« 

r,-s™r ='•--""-'=-';:; 

The  greatest  obstacle  to  meeting  it  the  committee  finds  to  be 


„,Utec  favors  a  w,.rkn.K  ''"y  ;';;*J^  '„.„,„  „c,rkinK  per.od  is 
experience  slun.M  nn.  ,.r,>  e  "^»  ''.„.,  ,,,„.„K,i,...  "  H 
.hi  one  mos,  pro,luct,ve  ;;;"  <;;  '^'  ,,,,,,.,,  „i,lv,u,  r„l,- 
,he  desire  '-•"-•."•""';;"  ..".unities  for  tull  par.icip.um 
,i„,  the  human  ^-«  '^,^  ,  '^^^,,  ■„  ,,„„,.„.,  facilities,  ,hey 
intheorEanue.lhfi"lsocu  >  pn.fmncc  to  the 

(,he  committee)  «o«Ul  ""''^"■' '"'  „  U-inL- '•  l'"'  i'  ^>«'"" 
atisfaction  of  the  danns  of  ^-  '-";-,:'  ^  ,,„„,p.,i,„,  it  is 
hour,  of  work  are  to  '.«  1™"  =>';„,  ,,,  .he  practice  of 
obvious  that  the  ^'^ ';';;,:  ;:Lmmee:  accordingly, -Is- 
overtime  employment  of  «'"*    ™  .^^    ,,,,i,h  i>  not  only 

approves.  ''  »'«'  '^  "'^T  lu.  t  "p.^  '-Unary  h.n^ehoUl 
aJHmental  to  .he  worker  ''"'  '^^^^^  ,i„„  („r  the  women 
arransemcnts  and  prevents  the  n.,e  ot  leisure 

as  well  as  for  the  men.  detriment  to  adult  educa- 

As  to  how  far  monotonous  work  .s  a  de  ^^^^^^^  ^^^^^^  ^^^^_^ 

.ion.  ,he  comnti.tee  feels  ""-'  »    ^^J^^  „„,,ica.ion  leaves  the 

that  work  ^l'-';  7''X:;  'X  ronsid  cctswhichunerest 

„i„d  of  the  worker   ;;;    "  /^  '„„„„„„„us  work  .lulls  the  mmd 

him.  while  others  ^•'"'^™  '™  ,7^,,,,,,  i.uerests.    The  con,m>.tee 
and  destroys  m..,at.ve  and  mteUectu  ^^^^^   ^^^  ^.„,,„^ 

concln<les  that  monotonous  work    s  P  )^^^  ^^.  ^^  .^^^^^^,^ 

workers,  hut  '*'- ^^^^^  ;;'::;:„ous'^..,.rk  if  the  hours  o 
may  not  he  greatly  harmed    y  ^^^  ^^,^,^^  „[  ,,,„,r 

•r,ne"lon::no  m:hts\han  eight  and  mechanical 

Uremployment.  the  -"™'   ;;;;/,  ,,;,,e.  the  worker  shou  d 
„en.  d  <le.enorat,on  and  ''>"';^  ;^^       „f  ,i,,,ihoo<l.  either  l.y 

„(  „»v  were  provide,   .t  would 
„  ,  „,so„.b,e  hofday  -'>'-' ^'^^J,. 'n'c.  only  would  ..ose  who 


INDISTRtAI.    KKIDNSTKri-TION 


ail) 


!•«<««  to  piir,M  Ihrm  al  .iinimcr  >,l„i„l. 

W..UI.I  U  „r„.,d,d  w„h  .ncrr.  "7„,  K,       ;,,r  , '' "'  '"     *""  <""«" 

"1  no  small  nu-asuri-  „„  .m  i,U.,„„„.     '>'"'''""'  '''^  'lqK.'n,l,.,u 
An.l   in    th,s  cn„„...,,  ,■'■';'       ^T;''  '■''■'"''«  "'f''™" 


OOVEKNMENT   PlaNS   FOR   DEMOBILIZATION 

Labor  party  program,  m,,,ortant  steps  have  alrea.lv  l«en  LkZ 

EJu'itf'?„r,f-'"j/;'if'°;',,  Abstract  <"  '^^  -P-,  by  ,h,  A.„„ 
Go--f"r.  1918,  pp.  M7.34S.  """"''   "'    R«onslru«ion   in   the   Labour 


.avice  .n  regaul  to  '^^^  P'^  «  ,t  t  a-ent  wouM  have  to 
t  aclminUtrative  work  wh^h  te      1      ^^^   ^^^^   ^^^,^  f 

.      The    Minister    called    atieni  j.  ^^^j^ 

riions^Uh  which  the  »7Xr  Sfe,  and  seco^lly 
?he  ettlcment  of  -il"-  ^"^  tdten  engaged  in  war  indus- 
*e  resettlement  oi  those  who  h  d  l.en  gj^  ^  ^„,,„„„,«ee 
tr  es     He  .aid  that  -n  regard    o  ,h    i^  ^^^  ,„th 

t    ,,  Reconstruction  Committee  had  cxa  ^  _.^„. 

.      .■  „       \nother  committee  aw"  .    ^  ^^orkers, 

tr::.ti^:---;-^;r<S:B:::H;e.ioneven 

■,;,.h  the  Minister  regarded  as 
:       that  of  .the  soldiers  and  -  o..^  ^^^„,,,  .o„,<l  have  to 
Among  the  subjects  ^^"'^  J^,*   V,„gements  for  provulmg 
dea^  the  Minister  said,  would  bethe  a       b        ^^^^  ^,^^^ 
ou  0    «ork  pay  f<-  «-^"^.'"  "'„  the  government  had  already 

The  majority  of  the  c  v.l  war  w  ^^  ,^^^^fit  (75.  a 

insured 'against  "nemployment^  but  '^^^,,„  ^^estion  for  con- 
"  ek)  would  have  to  be  '""'^f         ^^.i  in  carrying  out  de- 


INDUSTRIAL    KECONSTRLCTIO.V 


321 


mining"'."""  "'  """"'"""  °'  ""  ''-'  '-"^  -i-s  ,n 
The  Minister  further  calle.l  attentiun  to  the   fact  that   for 
r  settlement  to  succeed,  the  prosperity  of  the  in.lustries  mustte 
as  ured  and  there  was  a  need  to  classify  the  various  ,ra<    s  o( 
the  country  accord.ng  to  their  national  ,n,portancc  an,l  the  im 
medmte  prospects  of  employment  which  they  otTered     Thi,  r" 
qu.red  mformation  concerning  raw  materials,  financial  facilities 
and  employment   m  all   the  principal   industries.      There  were 
questions  concerning  the  reinstaten,en,  of  soldiers,  sailors  and 
rnun,t,on  workers  in  the  industries  from  which  they  had  gone 
the  ^uest,on  of  apprenticeship  and  the  training  of  <]isal,led  men' 
The  M,n,ster  expressed  the  hope  that  very  substantial  assistT,   e 
m  solving  these  problems  would  come  from  the  joint  industrial 
councds  which  were  being  set  up  m  various  in.lustries 

A  committee  of  the  Board  of  Trade  had  earlv  in  li.Ui  made 
a  repor   on  the  settlement  of  discharged  soldier.;  an,I  sailors  on 
the  land  in  England  and  Wales,  at  which  thev  ha<l  arrive.l  at 
the  conclusion  that  there  would  be  a  considerable  demand   for 
ex-service  men  in  agriculture  at  the  close  of  the  war,  not  nnh-  to 
take  the  place  of  those  who  had  been  killed  and  permanently 
disabled  but  to  produce  the  larger  amount  of  food  which  it  is 
generally  estimated  the  nation  is  likely  to  wish  to  produce  rather 
than  to  depend  to  such  a  large  extent  as  in  the  pas.  on  foreign 
sources  of  supply.    The  two  obstacles  which  the  committee  found 
in  the  way  of  attracting  soldiers  and  sailors  to  the  lan.l  were  the 
low  wages  and  the  lack  of  suitable  housing  facilities.'     The  first 
of  these  obstacles  seems  likely  to  be  removed  bv  the  establish- 
inent  of  the  agricultural  wages  boards;  the  second  is  receiving 
the  attention  of  the  Committee  on  Housing  of  the  Ministry  of 
Reconstruction.  ' 

In  his  address  to  the  newly  formed  Resettlement  Committee 
the  Minister  of  Labor  referred  to  two  investigations  which  had 
alreadv  been  made,  one  by  the  subcommittee  of  the  Reconstruc- 
tion Committee  into  the  matter  of  the  resettlement  of  sailors 
and  soldiers  to  civil  lif.  and  the  other  with  regard  to  the 
'  Labour  Gaulle,  1916,  pp.  2J8-2J9. 


munition  workers.  The  r^»rts  o  ^^  ,„.  ,,,  ■•  fi.st 
committee  have  no,  beer,  recewed  ^  ^,  ^^^^^^,  ^^^^^^^^  ^as 
(interim)  m'""  °f  '"^^"  /''<•».• '  The  recommendattotts 
Len  summarised  in  the  Labour  <^~<^-  ^,^  T„e  govenv 

„Uhc  committee  l.r.eilysa,^.l.«-»^  ^^^.^^  ^„,  ,,her 

„,ent  should  lend  tts  ;f""„Ji„„  of  hostilities  to  return  o 
workers  discharged  on  the  — "  ^^,,;„,,y  „,ed  for  demob.h- 
their  former  occupatu-ns.  <''  ^'  ^„„,j  ,,e  the  employmen 
zation  and  subsequent  [''""^''l^XsHiX.rueni  Committee  and 
exchanges  working  w.th  ^^^^^.s^y  of  Labor,  (c) 
„c  local  advisory  cotnnntt  cs  of  th  ^^  ^^^^^  ^j^^^^^. 

The  a<lvice  ol  .ndustr.es  a.  ^^.^  ;,,  ,„i  m  other  cases 

the  joint  industrial  councils  »h"e  they  ^^^        ^^  ^^^^ 

'thJugh  the  t™^P--^'7,\nrard  of  Trade  and  the  Min- 
Ministry  of  Keconstrucfon,    he  Boa    ^^         ^^^  ^^  ^^^^^  ,^ 
istry  of  Labor.  -""8  J^^^mtly^      d)^  ^^^^.^^^^,  ^„„„utees  and 

reasonable  prospect  of  P"«, '"^       ^^  ^^    ,  to  ascertam  where 
the  employment  exchanges    houldtak^^P^  ^^  ^^^ 
workers  arc  likely  to  be  requ.red  on  ^^^^^^.^^ ^^^  ,,i^^ 

„,-  the  war  and  what  the  ^'-^f  ^°  Jv  ,ual  war  workers  should 
to  be."     (e)  ''The«E'^'.""°"°/X,ing  tbeir  return  to  the,r 
,«  undertaken  w.th  a  "l«  '°  J^,, *  '^P'^^'"'^"'  *"'  '''"" 
former  employment  or  fi  dmg  ^  *       P^  ^^^,^^^^  cooperattng 

This  scheme  shouKl  be  "-  '^'J^  j^  ,":  J„t  contract  work,  mum- 

with  the  trade  unions.    (')  ""f°    ;  ^fs  notice  or  a  fortnights 

tion  workers  should  receive  ^  «»;  -^^^^.^^^.^  concerned  should 

pay  in  lieu  of  notice.     (S>  Jj^^      ^   ,,,ic  or  semi-public  bodies 

encourage  government  f^Pf^"  •/,,  contracts  in  advance,  the 
and  private  employers  to  place  pos  _^^,  ^^.^^^^ 

contracts  being  »"='"g^?'  '\""  Ued  estimate:  of  .he  cost  of 
Ue  adjusted  later  according  to  rev   e     ^^^^^^  ^  ,^^  ^ 

::^s;;:i5:r';:-r;::era,unem.oyment  Which  may 

."Demobilization  of  C.vil  « a 


INDUSTRIAL    RECONSTRUCTION  323 

The  Ministry  of  Reconstruction  has  made  puhhc  the  report 

hcers  and  others  requ.rmg  professional  and  business  anooin. 
ments  on  their  return  to  civil  lifp      t  """ess  appoint- 

s;.sr:;i  ssr  -  tt:™;  -'  "■-"■ 
s,r.i;r  •'"" '"  '-•'"-'■  '"^~""  ™s 

tac  1  ties  for  obtaining  ap,»mtments  by  the  department   which 

who  may  have  vacancies  to  fill,  particulars  of  candidates  frn™ 
every  part  of  the  kingdom."    Those  candidates  ZtTnlZ 

th,s  by  the  Tratntng  Committee.    No  fees  are  charged  either  t! 
employers  or  to  candidates  for  the  work  of  securing  pottns ' 

lnuJ/°"T'  ""^  ""'  "PP'y  '"  '"^  --^  °f  training   Xh 
IS  to  be  done  by  exist, ng  schools  and  other  agencies. 

Labor  Readjustments  in  the  Principal  Industries 
Besides  the  work  being  done  by  the  departments  and  com- 
mntees  already  mentioned,  brief  mention  should  be  made  of  the 
•  Labour  Gazette,  1918,  p.  175. 


e,ence  to  conditions  w^-h  "  'Kh  ^-t  ^^^^  ^^^^_^^^^  ^^,  ,„ 
the  industry  in  <^  t^^r^o^s.  The.  ccnnn.tees 
suRgestremtdies.il  any,  ' 

made  their  report  in  ial8.  ^^^  ^^^^  British  lal>or 

The  committee  on  the  texl^cr^-Jj;     ^^^^  ^^^  ^„,,,,, 

was  peculiarly  effi^'^"!.'""'^'   anywhere  else  in  the  world, 
;j„  «as  probably  ^'f^.^f^rrUre  was  little  restriction 

Txcept  perhaps  the  ^""^'',^'f;;  '  i,ed  kind.  owinR  largely  to 
of  output  "  of  an  ^^bnua   o    -g  "-«=.^„^^^ ,,     ^,,^  ^^ 

the  fact  that  P*'"  "f ,  !,tTby  "^»ns  o(  trade  union  and 
found  evidence  of  '"'"'"'«'„  ,,,  subsidiary  processes  of 
shop  rules  with  '"^'-''""'^  ""^P^^  th  these  restrictions  the  com- 
the  textile  trades.    To  do  away  «>'  ^,,ociations  o.  em- 

mittee  urged  th..   the  gov.rnme     a   -  ^^^^^  ^  ^^_^^,,^,^  „   ,„. 

P"'^-  r  r :' ll^^^^^  ••  ^  '''  "^'^  °'  '"" 

standing  betwtt'.'.  udoi  »""     j 

terest,  confidence  and  good  ^^f'"f       ■        f^und  labor  relations 

'","  ;he  iron  and  steel  '-^^  the     — ^^  .„  ,,,i,v,  l»th  sides 

to  be  on  a  better  footmg  '"  ^"^^^^^^^^^^^  but  such  organ,- 

„e  organized  to  carry  °"  -'"f^^^ucity  of  unions  has  created 

nation  is  far  fr..m  ~"P''.';-^^7^'^"„  ^bringing  all  labor  under  the 

confusion  and  the  »""",'",  .^^i  °"d  that  in  the  trade  agreements 
authority  of  a  single  trade  union  and  ^^^^  ^^^^^^^^ 

unskilled  labor  be  P™-f '  °^^,,  ^^e  worker  in  his  work  and 
favored,  for  they  tend  to  m^"  ^  ^,  „„  ,  The  commtttee 
also  lessen  the  danger  of  restncuo  ^^^^^^   ,„„t.nuously 

favors   the    eight   hour   day    m 

throughout  the  week.  „„,nvers  were  nearly  unanimous 

In 'the  engineering  trades  en^pWersw^  ^^,^^  ^^^„,,,„   i     a 

in  their  complaints  that  '^e  'rade    j^  ,     .^sents  a  reasonable 

iSumm«rie|nfth..r  reports  .re  .0 
1918,  pp.  306-307. 


INDUSTRIAL    RECONSTRl-CTIO.V  30., 

work  that  which  in  faci  was  iinskill,.,!     tu  ■        .         " 

t.  .„„  ■  I       I    ..         '  '  "  '"'""s  system  on  time  rates 

It  considered  that  "  n  the  future  it  « ill  in- 

-.put  s,,ou,d  he  encot^i^r :  :;:j:::^  .;7;;x'::: 

latorers  must  he  convince.l  that  to  do  this  ui  1  n  ■ 

«;-.^n.  down  Of  their  hest  earn^;:'"  ihL:,     C e  M;   „: 
when  peace  returns  „  must  he  recognised  ,l,a,  nn.ch  work  I   ,i  e 
to  regarded  as  skilled  must  he  considered  ,„  1,.        ,        , 
of  .u,ski„ed  men  and  women  and       "    .    r     f       "' M  '  """" 
be  suitahb.  utilized  no  trade  union  rn.Ll::,  ':;'';:  em" 
ploymen,     Automatic  an.l  other  machinery  must  he    re  ,    u  e" 
und  r    '    r"T'  •"''"  ""  "'"""'"-  f°""'l  =>  need  of     ! 

industries  the  committee  said  h'ttle  ahout  lahur  condit  ons    hut 
concurred  w,th  witnesses  "that   foreign  compemio  eJ    he 

war  can  not  be  regarded  with  equanimftv.  un> 's":  ,,,'::  ,t 

"slnce'LoT'th"'"'?  '"u""'"'  ""'"""  °'  "'"1""  -^'^""-I  that 
smce  ]!)Ofi  there  has  been  a  decline  in  the  yearly  outnut  ner 
person  employed  at  the  mines."    The  committ  e  cons^  th 

a  very  senous  matter  and  as  affecting  the  country's  cornn    it  He 
^wer  ,„  many  directions.     I.  thought  that  any  policv  ,n™  ving 
res,r,c  ,on  of  output  should  be  abandoned  and  that  Ihe  wo^e? 
shouW  have  security  that  if  he  increases  his  output  hrThal 
not  suffer  for  ,t  by  any  arbitrary  treatment  of  wage'ra.es  "    A 
a  step  towards  securing  fuller  cooperation  between  emplover 
and  employes  the  committee  favored  the  establishment  iTm 
™t  m  every  m,n,ng  district  of  joint  disputes  commit^  so 
employers  and  employes,  to  whom  should  be  referred  all  <lif 

:::^:ttrtirr  ^''"'"^^^'^-' ------ 

It  would  be  folly  to  attempt  to  predict  to  what  extent  the  pro- 


326  BRITISH    LABOR   CONDITIONS   AND   LEGISLATION 

,    for  reform  in  labor  an.l  working  conditions  which  have 
posals  for  reform  m   auo  .^  ^^^  ^.^^^^ 

been  briefly  surveyed  m  thi.  ^hap  er  w   ^  ,  ^^.^^  ^^ 

following  the  war  anu  ,f  adopted,  '"^^^^'^  ^  ;,j^  /(  ^uman 
successful.  No  doubt  here,  -  ;- -"^  ^Mgh  to  know 
endeavor,  compromise  will  te  the  n  R.  ^^^.^  ^^  ^_^ 

^a  th"e  is,  for  obvious  reasons,  little  -i.-e  — t.on- 

::::::l;:::r  that  upto  January  ms>e«.r^ca^^ 
an  addition  "^  l.^«:»«™rall  re  aiTe  tarhments'  How 
°"''':nhr:orn":il  "  -n^^^^^^^^^^^  -  the  dose  of  the 
Ta:^  °How  f  arJll  their  remaining  make  difficult  the  return  of 

""tZ  S:^l:l^^-'can  be  given  to  either  question  at 
;"pon!rd  in  many  cases  until  the  end  of  the  war  and  «dl  not 


INDUSTRIAL    RECONSTRUCTION  337 

long  be  postponed  after  the  war  is  over  an,l  ,h.      ,,■      u 

were  fnrm-,1  .        ■  .       P°**'"'^-     (3)  Some  women  who 

their  Homes  win  return  ILTX^^jrrT::^'^!,: 

.he  e°xt:      o'^V  h"!""'^  °"  ''"'  °' "  inclinations  b:.lo  on 
the  extent  to  which  the  war  has  left  the  wealthy  and  the  mid.Me 

en,p,o.ment''i„fi„a„eia\Tole^LXXL^^^^^^^^^^ 
t.ons  su,ted  to  their  strength  and  capacity,  tVy  w  I  l,e  rmined 
m  most  mstances,  if  they  desire  to  remain.    No  T^  e  men  " 

ablyjjn  most  ms tances,  employers  have  discovered  that  women 
^n  b^  secured  a.  lower  rates  of  pay  than  would  be  demandeTby 

eml  T  "'°'^-  ^'^  '"  '"''"^•"^'  establishment"  whee 
employers  have  not  entered  into  an  understanding  with  the  gov- 
ernment and  the  trade  unions  to  .estore  the  prewar  cond  tions 

rat':et'':mor'r'"'  "'l'-  '°™"  -;,oye:,7nd  iTn 
nave  been   employed  on  work  suited    to   their   strength   and 

b  re"  Ld"'  ^"T'°  *"  ""  "'''""  ^'y  -^"^  woment  ,1  not 
be  retained,  m  most  mstances,  unless  the  men  in  the  plant,  are 
trongly  organized  and  make  the  matter  of  reengaZ  'he 
former  employes  in  their  old  positions  an  issue,  (efwhi  in 
certam  establ.shments.  especially  those  engaged  in  engineering 

kept     .  necessary,  by  the  insistence  of  the  government    vet  it 

r  inrT'^"'"^'  "'"  ^"''  -'"  ^  -''ertak^n    nfnew 
machmeo,  has  been  mtroduced  which  can  be  utilized  to  perfo™ 


'      * 
1 


^2,  BB1T.SH    .ABOR   COND.T.ONS   AND   L.EGISUAt.ON 

.H.WO.W.    Genuine  .i«e.       ^  fj;^^^;;::. 

as  to  «"«.—'  irlXr rb  e  ttlorof  the^  differences 
war  condnions.  It  is  >"""«''^''°'  ,  ^„d  of  the  retention 
„iU  not  be  resolved  m  favor  onhcjnp  oyer  ^^^  ^^^ 

of  the  women  who  have  '^^J'^P'^'/^tered  that  many  of  the 
machines.  (T)  Fi"a"y. 't '^"'''^""'rindustry  They 
men  formerly  -f^'"  ;1";;  i/fiTor  are  phyJcally  in- 
have  given  their  lues  on  the  l>a'tl«heUl  ^  ^^^^ 

capacitated  for  their  former  work     ^be'*  "  ^„,„„ie,  or 

,0  this  list  those  who  w>ll  des>re  to  ""Brate    °  t 
,0  other  countries  or  to  engag    '"  7,  "^^  ,11  the  women 
While  the  above  categories  do  "°t  di^P^"^",,      ,he  war.  it 
who  have  ..en  called  -'"  S-n  u   P  -  ^s  du^J^  ^^.^^  ^^^ 
is  impossible  to  measure  l^anWa'  ^  t      P  ,^^^  ._^^^^^^^  ^^^ 
country  will  have  to  mee   of  "JJ";*;     %t  jhe  same  time, 
returned  soldiers  and  sa.lors  and  of    a^^/l^p     „j       ^ions  or 
for  the  women  who  des.re  to  "'am  the>r  P«se     po^^  ^^_^^^ 
others  equally  remunerative.    M"=^ j;"^'*f'^^^^^^    their  being 
themselves,  the  opposition  whi  h  they  *'^         ^  ,^,i,  „,e  of 
replaced,  'heir  organization  .nto^d    umo  ^^^^^^  .^  ^.„ 

their  new  political  P°«V.  the  men's  unions,  their  willingness 
also  depend  on  the  attitude  of  the  men  s  umo  ^^ 

to  accept  women  as  members  and  to  make 
their  own. 


INDEX 


AddiMn,  Chn'tophrr.  204 
Adult     EduMuon    Commilter—^^    Kduci- 
lion.  Committee  on  Adult 

botrdi,  UMl;  low  wiir«  ■  cauw  of  iVi- 
duMriil  unri-.t.  o«3;  mirimun,  wane  pro. 
po»cd,  H:  citablithMl,  200;  w<.TTn-n  in 
I6fi.   ION 

AmalMmatcd  Society  of  Fnilnwr*-  CIvde 
mic  in  1|,1»,  68^67,  74;C  Ime.  i!.t 
as.  aupnlmental  a.rctoient  to  Trcaa. 
uty  Conference.  Of.  aureement  nth 
K.ntrnniini  a«  to  exemption*.  12!1;  airee* 
mem  withdrawn,  =.1«.  S.V,;  diluii™  "l 
latwr  on  private  work,   2:tS.  2a(t 

Atnaliamated  Society  of  Railway  Servant., 

'*'i^LVi"i°,"'i.'°"'r'l'"°'>'-  '"■  *•■'•  ''"■■  -rki 
I'll  Villi  I'cVf  !n;,"""""  "orktr.,  1(10, 
Trad,  irm  '•  "  ■  •  I""""  »'  "»""l  "' 
L.I  ■tin  •,",??"''  "<".  ■"''i"'  "  "P- 
pe.l,  110;  ,\rhitration  Act.  IHSO,  til- 
rroviwons    of    Munition.    Act.    111.    .et* 

'.irioVaM""'"'  '""'■  "'■'"'''  "P"" 

•^™y  '"crve  munition,  worker.,  105,  126, 


Ailtwith.  Sir  Geoiae,  63 
Atkin,  Sir  Richard,  89 
Ave.,  Ernest,  13 

Balfour,  Ar.hur  Tames,  4,  0 

2'8"'   '^'   "■■  '  ''''■'•  "^"^  '^'   ^'' 

Barrow,  Ena„  housing  conditions,  258.2.W 
in_igian     rcfuaees,     government     efforts    to 

furnish  work  for,  44.48 
Beveridge,  \V.   H.,  07 

»S"',  T  9"''""',;*"t  1"",  224 

Board  of  Trade— <„  Tratie,  Board  of 

Donu.~rea  Wage. 

Booth,  Charles,  4,  240 
nf"L^.""'"'°"  '"  ""  Advancement 
Sin.>l»  ■  '"""  ""  indu.Iri.1  unreM, 
™.i-i:  t..  "'^'',"",:""'""  program,  271; 
memberiihip  of  Recon.truction  Commit- 
■J  "  ■"■■  'ccommenilation.  to  alleviate 
indoMrial  unrest.  273.276;  cooperation 
Between    employer,   and    employ^,    274- 

Brfilfi,'  f'.S."'""°"  '"ommended,  276 
British  Lahor  party— re.  Labor  party 

clm,l\  t?'"''S°PPjJ  Committee,   Igl 

lee,  142,  Tm"'  ^"'^'^  '^°°'""' 

Chamberlain,   Austen,  n 
Chamberlain,    Neville.   130 
Chapnian,  Sidney,  240.  243 
Churchill.  Winston.   13    14S 

^'Lj^^''    ^,"'"'1'    Committee:    reeom. 

mend.tion.    for    employment   of   demoW. 

lued  munitions  workers,  822         *""*"" 


"mift'e'e'H?'^""'"*"'"  '^"""•'"""t  Com- 

'^%'x,"m'-  '"  """•  •""'■  '< !•>«, 

Clyde   Worker.  Committ.e    2.'t.1-"'lii 

"i,-,"'"'"'   ''""""■    '"»'    "■dju.tmenl. 
Cole,  fi.  I).  II.,  32    7,    j„ 

'"rrc;^.';,',,,'"' '""•  *|"""  "• 

oVilo'.T'i  '"''"""'?':  "oi  i.rovidrd  for, 
loo  „!,.""""  '•'!"  "'  •IH'oati.e,  dO 
Un.   objection   to,    124;   a   reality.  ■l3« 

Con<<ripiicin,   military     lo^ 
Controlled    est.bli.hmint.'    HOl^.     ,„tric. 
'»".'  ?"„ .""Ploymeni.    Wi;   |„„i ,.  ,„  ^ 

'iar'-AV.,;;r\"ff",:c,"'-.';-r:;t'i"^ 

!!!!""";'■  '""■  "-■■  provisions  of  act 
M^nitio"n2"l,-t'"""'r"  °'  >'i"i"'r  of 
nerceni..;  1'  """''"  '"  ''"'•  "■•'"4: 
percentage  of  women  in,  113-  SundaJ 
labor   discontinued,    123;    rules    „f  5ib? 

^a  |i3i!i„^rT2rt  ir  i£? 

-13;   holiday,.    2I.-5;   welfare   work.   2Ifl; 
Corn   Production   Act,   IDlT,    ]im 

^';Vi,Si:fe,lsr'^n;;'^j--v':s;- 

",    64,    IM,    200  21)2,    ;e,o"iJf7,fm' 
mittee       investigating.       2fl3  2<I4  ■       .ten. 
taken    by    Food    Ministry,    204-2(«        "^ 
Cunningham,  .Vrchdeacon,  'US 

Befense  of  the  Realm  Consolidation  Act. 
amendment.  74.7,1;  pow.r.  unlr  7« 
221222:  orders  undJr,  2(;7.  "  S  •  nj' 
(ens,    of    the    Realm    Regulaiions, '  ,i!i, 

"Ss,''fol'"'m;;i.'S:'"7t-,t;'"i"4'i,"'!.°,' 

159,  .160.108,  178.180,  looinn'fe^: 
substitute,  for  .killed  labor  7374  m 
97    120,  130.  139,   140.  166    i-,7'iS2" 

tit^ute  "•\4l'?;i  ■"£•>  "'  "'"■  •"'■ 
Ind  eo'mm,  I  ■  ■"!»"!""•  In  clerical 
iSll-  ?r^Z  '  ;'  ~™P"  »".>.  147,  148, 
1.111,    trade    union    restriction,    on,    02 

lion,  of'  \I„^;i„.     ;  Jl'    jwommend.. 

dH4Vll?'"- «-""?'»«'?!?: 

nw,    HI,   dirirt:on   necessary,    126;   gov. 


S30 


INDEX 


"  *  L««     1 7 1  - 175 1    mobiliiy    of 

f:;;:';:/v™,K'.c...»»;r3 

iK-i'  pKlcn.um   to   pnvBte   work   o|.i..>wil 

Torres!  r'":.'"K'r-,.v«^.. 

DriJk'roW™-'"  Liquor  probLm 


E.™^lon.:    «»l«:."",l?."„?'"'Z„".'l. 


IrcSon':    c'lSU    or     Adol.:    -PO". 
I!w't;i?.V'tr.H»..   l.bor   ...Jio"""'.    '=" 

Employer**  at»o««lioii».  20 

SSlihilrf.    66,  Vcpo,.,  B6-57:    .««t   » 
vforkm.n-.   Compcn»liot.    Art,   ST.    m 

'.r'ss.  °i4.%"'  .'/r"m;  s'lY  ;ii 

7.™  .lor  oi  '"I'"'";"'' k5r'"S8-roo; 

ublc.  l«I)i.  U"*'!  Si  ',",«  -104  lOB 
iMvint  cert  ficales.  loi.  103.  111*.  >""• 
240.  2501  Ubor  P"ty  nroK.tra  dj- 
lobilijrd  Kildi'"  ""d  murilioiii  woiV- 
™  ■llO-.Tll  "22;  Ctm.ti  priwnni 
I'Vh  nSh  workmen.  2«2.  S«  ■■'"■ 
Unemployment  ^ 

Employment      exekin.e.-«»      Hbor      e» 

En£n"eS!fn«  Employer.'   Feder.tion,  M 

ilW  325  :ise;  Mrike  in  enrnee.inj  in- 
Er,"'e'erfV\m.l|i.m.ted     Soelet,     of—" 

E:fe'?n";siy'sirut'i,'oXe.-. 
^l&sSi'S?-'^"5"«"p;^: 

KS;KSin«!;;?;urKin, 

er.l  if  N««.o'"',.S"\'«5„'J'.'ii„'^'„t 
teeted  oecoptlion.  I'"'  ' JV'™'  „  i„. 
certified    occupation..    138;    women    in. 

E."i.  p.o«t..  6«,  76.  61.  93 


;    under    raiiiMry    »"  t  .v,    — ... 

. e.nceled.    '141».-,';    "i"    ■"• 

tilled  to.   136;   complaint.,  ^oi» 
Export.,  vxlue  o*.  23-24 

Fictorie.  I''P«"";'3'-,ir."'Jr"l'.h'?"l2a; 
rule  for  protected  el...  »'  '{"".tin'-'' 
report  on  hour,  of  work.  JJl'j  jl»..  , 

F.rwell.    Ju.tiee,    deci.ion    in    T.n     \«ie 

FedenK  rf'srituVinduMrie..  di«u..io« 

on  Whitley  report.   Z«9 
Food.  Minlu'ry  of.  2M  205 
Fyfe,  Thoml.  Alexnder.  87.  103 

fiarrod.  H.  W.,  162 
(iedde..  Sir  Au.tin.  1J7 
r,lad.tone.  William  1-.*     ,.       ,« 
l-.la.,„»    dock   Uborer.    .trike.   aSO 
Conner.  E.  C    K;,."!) 
??,;Sn'm.";";fl..t?'.o'ellev.  dl.tre..  d« 

to  unemployui'"'-  «.  "^  "..'"fJS 
Work  to  BeUiin  "'-'"•■":*'■  JiT' 
criiicised.  41*:  emergency  giant..  4n-5-, 
SSlief  of  diubled  .oldier.  and  »ilor.. 
'55.57,  in.e.ti..lion  of  iiJo-'"'!  I^V: 
243246;  reform,  to  relieve.  264-^1. 
lack  of  coordination  between  depart- 
ment, dealinl  with  labor.  ,257-258,  e«- 
ommendation.  for  Improyini,  207.2M, 
recognition  ol  labor  demand.,  261»-JTI 

Snft  'o'f  KaJ;  worker,  commit.-. 


Heflrtff«.n.   Arthur.   7T.   M,   *"*  -.g. 

Slfl-  !»bor  ini.  1"** 
Hour,  of  h'bor.  31.  20B-214;  •o.e'nm.n 
control.  92.  00.  10(1;  overtime.  120-123. 
Kale  of  hour,  giving  large.t  amount  of 
production.  20<f;  ryort  of  "."Ith,  o' 
Vlunitlon.  Worker,  d^mm.ltee.  208  210 
211-213  214:  regulation  on  government 
iork  20n,  .ieciSl  report  Faclorie.  In- 
Tpectir.    210,  , interdepartmental    eommit- 

£'«;.  "o'p'^id'V 'ffll  aca'tlon  S 
m°«ee.  Sis.  Si,  el«  Holiday.,  Sunday 
nl'o'^J.  proWem:  contributory  cau.e  of 
n.uoerlim  0,  reform  Lcu  to  reheve 
S;?!7roI5ng°  15-16,  aupnlemented  by 
Finance  Ae't  1010  W-lJ;  ""f"'"!^ 
and  legi.latlon.  220-224,  e"'""'. 
need..  1017.  221:  temporary  hou.ing, 
oijo.nos-  government  owner.hip  pro- 
mid.  223-'  Billrting  of  Civilian.  Act. 
Sol-  a,  cjuM  of  Indu.triai  unre.t.  !|ia- 
260;  government  Kheme  to  relieve  2S6. 
Adut  Education  Committee',  report  ,110 
Hou.ing  and  Town  Planning  Ar...   15-16. 

221 
Immigr.tioi.     in    relation    to    emptorment 

condition..  57-58 
Import.,  value  of,  23  ,-,.„_,  ,-.    »,/„. 

I.'OK  10  /IJall  Erfucolioii.  317-310 
Induitrlal  eonncil.;  r«ommen,led  V  "'i': 
i.h  A..oci.tion.  270;  l.t  W  In''"  "ffi* 
on  0711082;  2d  Whitley  report  on.  Jim- 
0(17'  modification,  on  recommendationa. 
305-307-  resemhiances  and  difference,  to 
trade  boards.  306-307 


IndHUrul  aittniuuann~tct  Tr«.lc.  uni<'n« 
InduilriaJ    ™„ic  „„i   ,,,J,„„„„||     ;|o.,„ 
i«  ii/jo  H«..n»iruction 

...»    If ""'li^'    5:'"'"'    5'    '"""■•    ■ 

Sjll  JH:    Urlb.    ,iuri„,    ,h,    ,„     23^: 
j(.^f.    rrcctit   tovrrnmrnt   policy   cuii«rn- 

mirift  nf  Mu^f..  2^o.2^a,  241-24A-  hiih 

«''"•   ■-J  ntofil«,in,.    24l).a«ri|»tV 

W4.  government  rrfomii  to  relieve,  264. 
tnduitry  .nd  labor  at  outbreak  of  war  22 
Iron^anl  .teel  trad...   labor  readiuttmenH 

Jackson,    rrederick   Ituth.   278 
Xirkaldy.  Adam  Willia.  2Tfl 

14  it  •  "■'!""  eomnared  101^  lOl" 
474«.  ™^"'''7"""'  '"  "'"lee..  46 
Ml  provldln,  aubititucef.   1.1(1,   IMIM- 

£ei^;p'v^&tS;^"^,°LH: 
s«;»'7?ssw;'i;,d',j?;  ;:3^  •£: 

''S'e'.„lr,'  4"t  "f  •<"'!":    I't""    I'tar 
W„Vl,™-.  ■   ^"'i"   niipnt*   Act.   N-IO; 

nilOTi.    11.13;    minimiim   wane     Il-l"' 

190»  I'i'  tS  "'""•,  ^°"'"  ■''■nnin.  Act 
Act  into  i-n!?"','T""3  I"'  """« 
r!™,;  ■•!'  '•"""}''  In.urance  Act.  1911. 
ir.1.1.',  """"nioyment.  IS-lll;  .pan  1) 
health  iniurance.  10-20.  Sr,  dii  ni 
fenae  o(  the  Realm  ConaolidalionAcT 
Munition,  of  War  Act.  "' 

Labor.  Mini.try  of.  177.  237 

of  \V?r  ^U  ii'"?"*'"'"-  .li  Monition, 
or  war  Act.  87;  favor,  a  d  na  diaabled 
wid.er.  and  uilora,  22»i  mlth  Sol- 
co^cr.t,on  with  Trade.  OnKn  C™^?'', 
a??.  ?"■     "">'»"Mi,„     program,  "ao": 

war  condition,  of  trade  onions  ntf  nl 
tion.liralion  of  great  public  ut  liii"; 
|13  Jemocraiic  control  „f  l„du,tr,,  31 J 
314:  municipal  wcial  ,m.  3i:i.3l/-  eo^ 
lu'°T,„"T^'  "!  «"■■"  '""modiSci 
Jet.'  ?14*  nT'  ■'•!'  '""''"'•■Ii"d  prS; 
Oct..    .ti4.     Rnancial    program.    314.31H 

s;;;?!tee'Ki,^;-'VS 

rcMlutiona,   270-271  -^a  i^he.ter 


INDliX 


331 

R'kdjuilmrntiii 


Labor    rcidjuHmrniv- 
Krcnnnrutiion 

i-^::  S'^:;;  ?i;:^r■  "•"■  >".  =•« 

I^nca«hirc  cotr-m   milt<   Trikr    "m 
L«vmi  ctriitiMlM,    lOl'  lo.l, 'LNi*     —■O 
LIbfril   t>«rty.    4  ■    -»■  ,    ..." 

LiOMor    prol,l«n:    In,,    Umt    duf    ,..    ,\,,„y 

P.,t,  3i3       -    '"""""    '"    I""" 

1  jvernoni   dock   laborer.'  Mrihe     2.11. 
Lloyd   fieorg,     Ii,,iH.    ,<     ,„     „     ,„ 

I4'2."lli2."fl„."1i,„"''     ""■     '•"■"■■ 

M««rthur,    M«ry,    (l7 

ing  from  operation  of  act  2(14.2(17.  li 
eniption  of  .killed  laborer..  2^;  Khed",' 
of  protected  occupation..  2n.1.2ll6"  minor 
cauae.  „f  eotnpl.int.  iwi-aS?"  rSS?.' 
romm,„i„„  ,„  „|i,„  complaint.  200 
Minimum      w>tc;      Irrlilalinn       l.*l  1K.      *-_ 

„r..hor  ,..riy""31o"°"'   ''"'■   """'"»   ■" 

So  :'l'ov'  i';.'".'^  "*•  '.™-  ""'Iction.  on. 
M««i.il.i.    *  w?*'.'"*   "rlificatr.,    102-10.1 


ic^    84..V  mnnXon.  bili  ■,-.i.".ed.Tul,'"!: 

u-  1/     '^'"'""■ary      hoti*  nB,      I'aa       22.1* 
scope   of   work,    2IH.    210     220-    |-«ill 

SS;  djS'oriaho'"rrT"4r°&,T: 

a'Sm'in't''  S^r '  I'S'  li-^'^r^^ 
.tnction.  on  mobility  of  labor  lOl'.in?. 
penaliie.  providcl  by  ac°.  lollOo'- 
""«'  'jSVi"".  ""i  «ttl™en  of  ™: 
SSsoia."""";  .-™i  operation  of  Jn. 
248-2.14;  complaint,  arising  from  240 
leaving  certificate..  2.10;  failure  ,o,e' 
cord  cTiange.  of  practice.  2.11 :  iSeoJalu, 
.killed"  21!  .?^o "!'"?';.  "'""■'   "dun': 

n';ii1iSo-;;'pr™'';'?„„3[„„r'fe 

arbitrary  or  un.ati.factory  action  of  m.i' 

."iSe  ;L  "°2'iV.l?J. ''i'en'd'm4""? 
act,    1016,-86;   08    V  ■l08:"'riT.",65; 


H»2 


INDEX 


lan       too       Ifti       ■n««»"*''^'«-2*     ***' 

""■     "im,  inl       t    "ri.     luiano; 

,on.cn.      "*'.'.V',,n'    IIM:  mr.nin,  »( 
(hrnnif  •  »n  *"V  Vii  mi'  miiniiioti"  *olun- 

""'"""iii'M°'VoJ  T«     an    aiJ-.  •• 

pliUfir,  "«'"";'L°1„„;    in.lo.lrk..  ni: 
S„„,,.tlon.  .ml  """""^1  i",'"   .„,!  n,..l 

«fvi«.  ^V      i*rv«hVr.  ".nd   proponlon. 
\y,-.  S5,'„.  ..I  -"rrVl.  „■.  -o!;.r'....v. 

cr.,  ITI.  n^.    "  VtT-     Iraininu    c1..m» 

indo.tti«i  1.....  '"• ,.';  "„;i„™.iil 

20lt;  to  Kour.  »<  ';"";•,«     217:    WrlUt. 

„l.,,oKnt   of   .lc".*i",.rf     -  ■ay  •,„„,1 
lOd;   .100.1.      "'.,  ,„;    IM. 

:«,;  liiMi  '""■"«  ■""••  ""■"'• 

nIS    Ubo.    .Vdvi'o'y    commute.    M. 

N.t...n.l  «rvi«:  '""y"'";™..  130.>3«; 
12«.127i  I""™"'"'  "{'o.  '.Ilorl.  10 
rr«.nt..     for     '"""„".',..  „e^  pUn,   136- 

lor  enrolliof.  i-»'-   '   „„    ,33.  ,pport  of 
"r*    '™S-.    00    "'.top.!    "P',"il'- 

'iMl   lpd«.tri.l  con«,.pt.on.  13J^'»%,. 
N.lion.l    Sotvi"    ncp-.ttP'Ol.     l.i.i. 

N.'^?n.l    S.,vic,.    Minl..t,    "<■    '»•■    >»=• 

N™m.n.  Sir  O-oritr,  »» 

o.cop.>joo.:  «"3'i',',i':''rff's-  p"S; 

1I«  of  ro.lr.ctrf.  "'•  J'"j     ,3'n;    t,Wt. 

i;ji:5':'„'rV'U'oo"'p'ri'Jo.  o.'wo,p-p 

„.  I,,  ,p.otod  A'iir'",',,,Vpc;  o.tim.to 
provLioo.  "'  "?,i„  "lo..  .ddillonol  •!- 
or   number    ai''"'""?' .  o  Vs 


1*1.  ui.  i»»; 

•21IT;  ».io'l.y  I"**'; 
«...      .■!«■   i.rcle 


'^^'^■B£±.mr^ 


.....    ,.„„.,   ..nor     im.    J™.^'„i;l 

,„oni.,.«rd  •;?„'"":;;;  U..i.o»iJ  k 
'.'i'o';p,o.dlo  <""i-  «„  *"  "•' 

Kr.dlu.tio<"i.   """""".""'"mIo        ..Pdi- 

r-..i.  aTi.'..  !>;»•  '"■"■■  '""'" 

.hown  hj.  •'•"■'■■..,;    a,Hi 
p.jmrni  hy   ■    •      \*:,,ntini.    2fl«       .T« 
PcoMon..    't.'*-      '      ■ 

,;;!;JI'''>ffi£oi.  .ni|;,aaT^^„,„, 

report,  *  .    .,,,,,i,,n   .nn   hi»tiiry,   f\ 

I'dlirr.       1act('rie».        "'■" 
p,J;".Vt"ndUI™l'  oV-mployP."".  ".to..- 
,lo"of-."  F-"*.""::' ,1    •«,  31.   321 

SKi  ■ol'Tndo.Trij:?  »-orjJt    ««1   .-""■ 

Production/  of  lM.tln|  C'  >  ^   ,,,,(>„., 

y.luo  of  impoil..  23.  .juj  ^  ^^,  .,. 
23.241  ""P'"""  ■  nroirim.  in.  "W-Wl 
t^pt   "'••'"     "„J";i"oduciion.  Jl- 

SS>2«i.  '".""•,?.'„"„;'  tih""""'  I- 

2OS;    output   in   r*'""'" 

ta,.  anil.  ail. -"  .pp„iptmori. 

■■'Si'^'Sr.  ^«!"n  S?  .J ;;,  ".r ; 

£,.rd.J«.™;;„^yj-,''i,;"^J,, 


.kipy.rd..  n.'™!   '"".'."-,■,  ■2,1,      ....... 

rPBular  1  me  Veepi  if .  *  ■  ■,  *.'■,„..  of 
'",'  fune.  .nd  ;«'"i"l"  "  :„Tof"  ork. 
*,.rk  ■'  T1.72;  3d.  dem.rMi.on  '■      _.. 

prnfitrrrinR:     «""^„^'     '",-_,    to    reform. 

P,='^,=?xce..- «". '.»  .■;;/^,„  _v,p. 

p,o.perity_^    t-.l.      .poll"' 

cla"e..  23-2*1     .  .3*. 133 

Servants 


tiJn.  JlKr',"  "'  •"!PI">"""1  °"" 
fKini.  J«l-41i  In  wumvn  •  trailci  41.4^ 
r»»«rnmcni  rffurti  id  rrli^v,  ,Ii,i,„.    i    ' 

!.°/i;,'Z','mJ'"!:.""^  ■""'"  ™~' 

ni.m;n,H;i:*n^„'"-i;;;"„V',;ijH',„r:,'3 

nicih„H,  „(  ,m|.l.,,mrni.  BJ,'!?  ,mli„ 
irtliim  ■,        mmigrntloti     n7  %<«     /h 

/lis;"? "'  ;"*"■  »-•«'  '"i^'  '."i^ 

JUMmrnt    mvfMlB,|,.,n.,    .•|14.3-;.'i  -    *.,!'' 

«„;."£'"■  ■""•■'-"■  ■*"  •'-■  5«™ 

P  .■oniirutlbn;    ™™or.nd„m    .(    „|,i„,, 
houflnc  Mtip      -j-i'i.   "I     H'lviKiry 


INDEX 


333 


tr.dj  utilon  .„«„,„,.   2711.2711     ,™,i 

Sr"",  •■'"L,""''  ko.nli'"5i,».ijl"'''» 
r""  P'  Ubor  party,  .KIS..1I7  ""nmi  „( 
fomiiim,,.  on  AJullKilnciion    'in  110 

KJ'SSa .'"i'.k  "'"■•  J '"'  -I'™''  i..'  io°: 

aiB-3.3;    hibof    re«diuMnitnii.    .lL';(.a2S 

R«<m»truction,   Mininry  o'    223 

"ot'Lb!ir'''nn'""'"°'"'"'-    "■    melhodi 
SSrVs-V."^   "Ulci.n,'o%  Vo-cSS 

Hori^ncrd.   «;   .»„„,   ,„,   „n.n,pl„„d, 

Hownlree,  B.  S..  4.  217 

RmKta.n.   w.lt„.   75.   70.   77,   232,  233. 

I"i'.'°i'~"'  Solditn  .nd  uiloii 

Salitburr    Lord.  4 

S«m«l,   Hcrbrrt.    42 

Some.     Brlllih    Auotiatinn    for    ih.    Ad 

.»",i,rrd..':;;;-,!;rit„^--'"^ 

gemmfn  s  compcnMtior,   L'flO 

Shoiuse   of  labor:   tarl,   in   the   .„     ni 

,  '<•  "'  f™ti.  lab.,,.  ifl"'i7jr'  oV,?: 

wB^ea,   1S8;  coat  of  Iivinf.  205 


'Mr,';'.!;'",'^    '!"•■    ="■    •""■"Hiam   o,. 
.■"mprion/'l'Mi"""'.  "■'""■■■I.    in.]  Ill; 

mil  '"      '"""'""  "f   lb.   wa.: 

'°li'7''"-2V'iaS''""'  ""''  »'  ■l'»'""l.  »»• 

".'...;■(,         P'"<">r",  am.  and;   ,i. 

'™i,,'"p'«r".:t'a"r,';;;;:;:,'i,,:'''55;'; 

Snulh  W'aira  („„|  „,j||p    2.11.2.14 

"'r.k..     Tair   Val,   Kali;.,  .,7i%    „.   „,. 

Ho?"n„',"l'l  •""'""•     '""'l";    .rblri: 

'  a^n't'SJil  ;..';5i".-i';.^'';H'..  ,2», 

IS!.  J-l'    '.■"•"•I'irr   coii.in   mill.   .trlJ;' 
2M1  r,l„,o„  dock  laborer.'  "ir  b,    {?•: 

!'■"-'.      amplSmcni' "     ;L„V"Vi;' 
"  ■:   •o.crnmcnl  cITofi,     "„„,.,* 

Cro"'rfii.rV'ii,,L"c''."-,';y.Uf."Ta;;r; 
:;i  n'a7o':.7:?r'..icrp  :;";■,«  i^j'-^ 

Labor  .Supply  Commillcc.   1N|         >-""■' 

Taff  \'ale  Railway  itribc.  0 
Ttnri4nt.  H.  ;,,  rtfi 

t'"c   kc'c'Sl,'.'-  '■'»'. '"''''■•tb.anl.  324 
Xcoo'^Vf'    "■'"'■'    C™"it».   on    Pro. 

ll'lrnro,.  /„,;■  i^,-;„',"^^;  V  '»  "• 
P.al  to  .omen  for  ,a,  i„"i,  \'J,:  l'. 
wnpHona  lo  c  aaaea  of  worker,  i-^ 
Ptor....nd.    for    womco     In     I.'"'  ^^^S.' 

.r.";/,*  'a«  ""™""p.oySr 

".dKaS5''i.i;r'n7.nd-''!ik''','ab2; 

of  lOls"  307;3I1S  ■    '■*•    •""<■».« 

'^'till.  S'lS-     'ff""'""    and    differ. 

xsriri-c.  -r;  ti'-ir-i.?-:?,^ '- 

«:U.,>e?V'S-Hio'?Vh.T;rin''c';e.°?; 


334 


INDEX 


duRriil  o.B.i;-»ti»»'.  S.  t,id,  union 
movnncni.  27-29;  •"""J'^  ¥,ip„  AUi- 
.n«.  '»"•?,»£;■,"  20;  r.Ullon  to  ■"- 

for.  61>."'*"v.ottii-  diMareement  in  en- 
,„d,  .™'°"'v5?- osWlTKS  ot  H..  J. 

\mn.nl  '"  ",';^"  M.  ,„„mnitnd.tToni 
relaxation  of  tule».  OW,  t«      .^^  74.     ^e- 

.trictive   '"'"_;""";•  f2;   contrictor'l 


■"""■^X.""    o    coniiSn    outpnt    ot 

Trniurv  W';'"'\V,l  ,80  181;  .Jn-ini'- 
140,  141.  "2-  ''■;•  iSl-  mtrobcrthip 
,„.ion  of  «'«"S"h.t3.  112;  *"'••• 
not    MUse    for  ."w^Ii^liiitary  8er\ice. 

dlution.      *t-ii  V'-«rV    l-iO    167;  allow 

rif!  iJT  '»""■  i}4.  i«.;^.srr" 
L^^rrsS,"].4/S8.jo«.2io; 

mill   J"c;ntM.    of    ""J^P'^'joo;   .Iti- 

i'S:  MbRrS™;  Strik..;  T,.d»  dl^ 
putes       ,  *4i    :i08-30d 

ssss;^.?°^'s;;,:?2.^ri^ro, 

■""HI*    .ti    "     Sr    o(S«   mtmorsndiini 
«"""'■   "■;  ' ■'  ,-co"r»  of  rmnloy 

to  contr..ito-.       -  ■   '  ,^ ,    n^rcrntiiKr   t«. 
„,„t    """j"';,','!   ■     3«.'  ir.dr<   workinj 

"•'.'■."T^lA-Sort.  to  find  «ork 
Road  BoTd.  43.44.  .Bjyj'  „■„■„■„„  „, 

Kovernnipnt  _  nUnj..     aot.  .  ,      ,.. 

pint.,     " 


n.mb«.  «5,i;fi?ri«s'a!r*°.'n..n; 

I,T>^742^^4'22..J24.22,;... 

Ss.    V«  .;»  Emjloymtnt 
UnikUInl  l»bo'.  »B10». 

*,'■"'  rvt'.r'K-'j.'AS.  "Sof"''; 

Si     Sli    d«rc.«    in.  "'"'"■'■    ?.*|S: 
.dTu.tment   of.    19;      w.r   ww^jlj^; 

:.T.;\f"  -    .«^   4''>A9''°« 

bonoa.    r.9-80    »a,„^,i,    „(    Monitionk 

i'tS-  *",ki...S'  ..Sm™     """"'     VjT 
lutj,     a"'"™  prij  volunteera,   138. 

"?'.•.    ll    i^cVaZV.    185-188;    Anc™*' 

tl™    18«    m™"'«'  "omtn  <0  in'"""- 

',°y  ■  172;'  rVVniation.  l.««-'»»|,,5,'  ';,%"'/• 

C;'  aHa^'oV'indtlrlTnnr.at.  283 

ain  ^,_, 

S-S  "rSo'"  '?o"iS;.«r.,    94-96.     104. 
w"*6ffi«  memorandum  to  contractor. 


49-52:     dlaappearance    ot. 


wrP.^°.Ca"su»tor,  Committc.  1915. 

w"'.ork-«.  Natioofl  acr,!.. 

Welfare  "(Ork.  21^220 

Whitler.  J-  H-.  ^J"  .  ,  ,      „„  on  Indoa- 

*T  ;  t'coS"  ■  ana  io^>  T'TVA-  iS: 
282;  diaco.aion.  by  ''•"5i''',,*."*VoA. 
284-    Northtwcat    area.    284-285.    Ko™ 

2d    report    on    inova;""'    507.208-    con- 
207;    worVa    commilteea.    WJ  «•" . 

Siiation  and  •'il">''°"i,S;f  ?n  l'«a'« 
Women ;  lnc"">!l  r"'j;S"41  -42  '  Cen- 
nniona.  2«.;,"',''"?'1,^^„"'  F.mnlovmenl 
tral  Committee  on  Women^  %„„ditionn 
const  toted.     43:     tninroveo     J-    .  , 

Induatrial  tran.fera.  ft2-54^.  ™rbit?atlon 
„d    ■"ni.ner.non.    98JOO^,   „n„,,.. 

V,f«°"a~.'a  ■  .0  -"•"'  'STUBS'- 
24.-   125;    niimber   ey„1  ed       »3.    P^J, 

labor  available  early  m  «^'- „„  „,. 
■;;VV!;8'"i"ts"W  i"cr".ed  emoloyment 
144-158.  1781«".  •  .  -,2  j„  munitiona 
in  "■>'"•„"    ';2'.'i54;    indoJtrial    ttainj^, 


INDEX 


835 


M-97,  1S6-108;  numlxr  anil  proDortiun 
in    munition*    work,     180.162-     in    non- 

\^\%*i'  "?'  •»■'"•■"  of  employment 
168.171;  Ubir.  iQQ;  «,„,^e«  of  .upplJ 
!,«'?'«'"''•  171-"5:  nioblity  of  labor. 
}1^'.''  **««■.  02,  (to.  IhT.  isn  ]jK). 
1?T'  o,*^"«,°i  '■'**''■  **'  206,  aU7.  210, 
«1,  212,  213.  214;  overtime,  120.  201 
212;  welfare  work.  216-220;  housini 
problem  as  reUted  to,  819;  rates  of  pay 
not  equal  to  men'a  cause  of   industrial 


Uiirken"  National  Committee,  48    40 

Workman"  and  "workmen-  defined,  ItO 
Workmen  >    Compensation    Act.    1009,    H(. 

Works  committees;  reports  on,  by  Com- 
mittee on  Relations  between  Kmploveri 
and  Employed.  281-282.  207  208;  by 
MiniMer  of  Labor.  208;  function..  2^. 
301;   relations  to  trade  unions.   301-3U2 


